The Silent Crisis: Including Latinos and Why It Matters

Representation in Executive Positions, Boards, and Commissions in the City Governments of Boston, Chelsea, and Somerville

Miren Uriarte, James Jennings, and Jen Douglas

1 Prepared for the Greater Boston Latino Network June 2014 The Silent Crisis: Including Latinos and Why It Matters Representation in Executive Positions, Boards, and Commissions in the City Governments of Boston, Chelsea, and Somerville

Table of Contents Network Statement...... 4

Acknowledgments...... 5

Executive Summary...... 6

I. Introduction...... 10

Why Does Representation Matter?...... 11

II. The Study...... 14

III. Representation in Executive Positions and on Boards and Commissions in the Governments of Boston, Chelsea, and Somerville...... 16

Boston ...... 17

Latino Representation in City Government in Boston...... 21

Chelsea ...... 33

Latino Representation in City Government in Chelsea...... 37

Somerville ...... 43

Latino Representation in City Government in Somerville...... 47

IV. From Inclusion To Active Representation...... 51

V. Conclusions And Recommendations...... 54

Specific Recommendations for Municipalities...... 56

Specific Recommendations for Communities and Constituencies ...... 57

Works Cited...... 58

Appendices 1–7...... 60

About The Authors...... 78

2 3 About the Greater Boston Latino Network Acknowledgments

The Greater Boston Latino Network (GBLN) is a collective effort of Latino-led community-based The authors wish to thank the members of the Research Committee of the Greater Boston Latino organizations in Boston, Chelsea, and Somerville working in partnership to address historical under- Network for their guidance and feedback on all aspects of the project. Thanks also go to the staff of agencies representation of Latinos in leadership roles across the cities of Boston, Chelsea, Somerville, and the in each of the cities who addressed our questions and clarified the available information. We finally would Commonwealth of Massachusetts. like to thank Jim O’Brien, our editor.

Our mission is to promote Latino/a leadership in decision-making positions at the local and state level–from city halls and local boards and commissions to state agencies—and to increase funding and resources to build the capacity for Latino-led organizations in Massachusetts. We advocate for policies and initiatives that will advance and benefit the Latino community in Massachusetts.

Members of the Greater Boston Latino Network are:

• Centro Latino • La Alianza Hispana • Centro Presente • Neighbor to Neighbor Massachusetts • Chelsea Collaborative • Oiste? • East Boston Ecumenical Community Council • Sociedad Latina • Hyde Square Task Force • South Boston en Acción • IBA—Inquilinos Boricuas en Acción

As part of this collective effort, the GBLN commissioned a study to analyze the Latino presence in decision-making at the municipal level. The Silent Crisis: Including Latinos and Why It Matters is the report that resulted from the study and it portrays the current lack of Latinos in leadership positions in three cities: Boston, Chelsea, and Somerville. We acknowledge that this shortage is not unique to the current city administrations—it has been a historical problem. The intention of this report is to show the state of Latinos in decision-making positions in city government. It is intended to spark dialogue with these three cities and collaboratively work in finding solutions for dealing with the existing challenge of the under- representation of Latinos/as in positions of leadership. We think that this report should be taken as an opportunity to begin including Latinos in City Halls. GBLN is looking forward to working with the three cities in finding pro-active solutions. We know that this complex problem will not be solved overnight but we are confident that in partnership we can address it and solve it.

This study was conducted by Prof. Miren Uriarte, Prof. Jim Jennings, and Jen Douglas with support from the Barr Foundation. The views expressed in this report are those of the authors and do not necessarily reflect the views of the Barr Foundation.

4 5 The Silent Crisis: In the case of Boston, home to the largest total number of Latinos in Massachusetts (107,917 in Including Latinos and Why It Matters 2010), the report documents a definite and measurable under-representation of Latinos. The Mayor’s cabinet includes five senior members of the Mayor’s staff, none of whom are Latino, and 10 chiefs, only one of whom Representation in Executive Positions, Boards, and Commissions is Latino. Overall, although Latinos are 17.5% of the population of Boston, they hold just 7.5% of executive in the City Governments of Boston, Chelsea, and Somerville positions in city government and occupy only 7.1% of seats on city boards and commissions. Miren Uriarte, James Jennings, and Jen Douglas In Chelsea, one of the two majority-Latino cities in Massachusetts, Latinos currently compose over 60% of the population, with substantial growth (by 28.8%) of their population share since 2000. However, Executive Summary Chelsea’s overwhelmingly Latino population is not yet reflected in the make-up of the city’s government. Latinos represent 14.3% of the appointments to executive positions in city government and 10.9% of the The Silent Crisis: Involving Latinos in Decision-Making & Why Latino Representation Matters provides appointments to boards and commissions in the city. Although the Latino representation in executive a measure of the economic, social, and political inclusion of Latinos at mid-decade in three cities of positions in Chelsea is almost twice that found in Boston, the gap between the proportion in executive the Commonwealth where about one fourth of the state’s Latino population lives. Often wrongly positions and the proportion of Latinos in the population of the city is much wider in Chelsea, signaling a referred to as a “new population,” Latinos have been present in Massachusetts since the end of the stronger exclusion at this level than was observed in Boston. 19th century, arriving in large numbers beginning in the 1960s and 1970s and growing to nearly Somerville’s Latino population is smaller than that of the other two cities (at 10.6% of the total 630,000 persons (9.6% of the population) by 2010. That same year, they accounted for 62.1% of the population) and more recently settled, reaching significant numbers in the 1980s as Somerville became population of Chelsea, 17.5% of the population of Boston, and 10.6% of the population of Somerville. a “sanctuary city” for refugees from the wars in Central America. In Somerville, the report documents a definite and measurable under-representation of Latinos: there is a total absence of Latinos in executive The report focuses on reflective representation, that is, the type of representation that seeks to positions and minimal (1.7%) representation of Latinos as members of boards and commissions in reflect the demography of a certain group or population. It defines representation of Latinos in executive city government. positions in city government and among members of boards and commissions in relation to the representation of Latinos in the overall population of the cities. It identifies under-representation when the level of Inclusive Government Is Better Government representation in government bodies fall below the proportion of Latinos in the population of each city. The While the Latino population in each of these cities is distinct in size, region of origin, and history of report utilizes census data to describe the population of each city; each city’s publicly available data on arrival, by examining these municipalities through the lens of Latino representation we reveal a feature shared specific executive positions and boards and commissions; and interviews conducted with government in common by all three: the characteristics of those who govern and those who are governed differ. The officials in the cities. literature on representation suggests that inclusion matters. Representative bureaucracies are more likely to pursue the changes to policies, programs, and practices that are necessary to remedy inequitable Representation of Latinos in the Population and on Executive Positions and Boards and outcomes and serve particular needs of underrepresented communities. The research shows that the Commissions in City Government. Boston, Chelsea, and Somerville. benefits of representation (like improved student performance) are broadly shared with other minority and Boston Chelsea Somerville nonminority groups. In these three cities, inclusion of Latinos may have consequences not only for this group— Proportion of Latinos in the population 17.5% 62.1% 10.6% Proportion of Latinos in executive positions in city government 7.5% 14.3% 0.0% whose contribution are recognized and whose needs may be more effectively met as a result—but also in the Proportion of Latinos serving on boards and commissions in city government 7.1% 10.9% 1.7% overall functioning of city government and its agencies. A representative bureaucracy suggests that everyone Sources: Census 2010, city websites, and data gathered from city agencies is included and lends considerable legitimacy to bureaucracies.

The report demonstrates that while the Latino presence in each of these cities has grown and Given the growing presence of Latinos, government agencies working directly or indirectly in the become increasingly evident, the presence of Latinos in city government has not kept pace. Instead, in each areas of economic development, housing, education, health and human services, and public safety will city, we find a gap between the presence and growth of Latino communities and their representation in the likely be successful in their missions only if they can effectively address the needs of all the residents of halls of government. their respective cities.

6 7 Recommendations for the three cities include: Recommendations for communities and constituencies include:

1. Pursue the inclusion of Latinos at the leadership level. 1. Be organized and vocal.

• Adopt a vision statement endorsing the importance of greater governmental representativeness • Make specific demands to which leaders must respond. of a changing demography. • Anticipate the “nonlinear” nature of change, including potential declines in service outcomes as • Adopt a formal city-wide outreach strategy for the recruitment of Latinos with requisite skills and small numbers of Latinos assume bureaucratic roles, and continue to press for inclusive experience and who also have an understanding of community-based issues both for positions government, working toward the “critical mass” with the capacity to effect change. in city government departments and for appointments to Boards and Commissions.

• Create an explicit goal to develop a “critical mass” of Latino leaders, whose influence can be felt 2. Build alliances with other groups that also are under-represented in municipal in improved outcomes for Latino residents. leadership, and also stand to benefit from increased inclusion and active representation • Develop a process of oversight and accountability that will monitor the city-wide outreach and (important in any event, but most relevant in Boston and Somerville of the three cities). appointment strategy in collaboration with community organizations and leaders • Strategize to avoid competition for limited leadership positions.

• Work collaboratively for a broadly inclusive workforce and for service improvements to 2. Support city employees in adopting an advocacy role and actively communities, recognizing that all residents will likely benefit. representing Latinos.

• Encourage the formation of internal political supports, like independent networks and associations of Latino employees or employees of color. 3. Collaborate with the cities in developing goals, strategies, and oversight for their efforts to diversify their workforces and, specifically, the representation of • Establish objectives that make the work of increasing the involvement of Latinos and improving Latinos in the city workforce and on Boards and Commissions advising the work of services to Latino communities an explicit part of agency and individual expectations. the cities’ departments.

• Target initial efforts in substantive areas in which Latino communities have a particular stake, • Continue to review the taxonomy of boards and commissions in order to determine their including housing, education, and economic development. salience in terms of Latino living conditions and monitor the openings in these boards.

• Develop a listing of persons knowledgeable about the community’s issues who are willing to 3. Leverage efforts at the leadership level to pursue a more inclusive bureaucracy at volunteer for boards and commissions and/or be employed to provide service in city government. all staffing levels.

• For leaders with a role in hiring, support them in pursuing a more inclusive staff throughout an agency’s workforce.

8 9 I. Introduction

The full inclusion of Latinos1 into the economic, social, and political landscape of the Commonwealth The growth of the Latino population represents a powerful argument for fuller inclusion in is a long-term concern of Latinos across Massachusetts. Often wrongly referred to as a “new population,” decision-making on social, economic, and political issues. But it is not only growth that is at issue here. Latinos have been present in the region since the end of the 19th century, arriving in large numbers beginning Latino communities are also changing in ways that make them more diverse; this leads to calls for greater in the 1960s and 1970s and growing to close to 630,000 persons (or 9.6% of the state’s population) by 2010. understanding of their characteristics so that city services can be effective. For example, for decades Today, Latinos congregate in sizeable communities in most cities in the state including Boston, Springfield, the Latino population was largely of Puerto Rican descent, a group that is not immigrant. Today, large Lawrence, Worcester, Brockton, and Chelsea. proportions of Latinos living in Massachusetts come from the Dominican Republic, Central America, and Colombia, increasing the proportion of immigrants in the population and thrusting it into the patchwork of The Latino presence across the state has become increasingly evident, but the insertion of Latinos policies and practices that result from unresolved conflicts in immigration policy. Similarly complex is the into social and political institutions has not. In fact, the struggle of Latinos in this regard—from the earliest overwhelming proportion of children and young persons in the Latino population compared to the overall days in the region—is well documented. Uriarte, Osterman, and Melendez (1993), in a monograph produced population of the state. As reported in the U.S. Census Bureau’s Decennial Census of 2010, almost 50% of for The Boston Foundation’s Persistent Poverty Project, documented both the sharpness of the exclusion that Latinos in Massachusetts are under age 25 (47.6%) and 32% are under 18 years of age; for the older non-Latino greeted Latinos and the ways in which Latinos developed their own organizations to address the exclusion population young persons under 25 account for only 27.5% and those under 18 account for only 18.5%. they faced from the social institutions of the city. In a 2001 study of social capital in Boston, also for The These social and demographic developments add urgency regarding policies and practices affecting the Boston Foundation, Lane reported on the barriers Latinos faced in engaging in the social and civic life of availability of early education, the low educational outcomes for Latino school children, and often-erratic the city, concluding that the isolation of Latinos required “close examination and a new level of concerted school-to-college and school-to-work transitions for Latino youth. response” (Lane & Currivan, 2001, p. 15). A few years later, in a 2002 study of political representation of Latinos in Massachusetts, Hardy-Fanta noted the dearth of executive appointments or appointments to boards and commissions in state government, labeling the under-representation of Latinos “severe” (Hardy-Fanta, 2002, Why Does Representation Matter? p. 4). She reprised this analysis (with Stewartson) in 2007 and documented a similar absence of Latinos in the leadership positions and corporate boards of the Boston Globe 100 companies, of hospitals, of institutions of Both in the public and in the academic spheres, there has been a continued focus on the higher education, and of cultural institutions in the state (Hardy-Fanta & Stewartson, 2007). “representation” of groups defined by gender, race, and ethnicity in the government bureaucracies that serve them. Though by no means universally held, the general public assumption is that these groups are well represented and well served when there are persons of their group within the bureaucracy, because they Table 1. Growth of the Latino Population. Boston, Chelsea, and Somerville, 2000 to 2010 will look out for their interests as policy is developed and implemented. “Representation” has meaning as a symbol of inclusion, and as a measure of empowerment, of under-represented groups. 2000 2010 Growth Latino Latino Researchers generally agree. They use the term passive or reflective representation (Evans, 1974; Population % Latino Population % Latino 2000-2010 Massachusetts 428,729 6.8 627,654 9.6 46.4% Riccucci & Saidel, 1997) to describe a bureaucracy that is reflective of the population, such that demographic Boston 85,089 14.4 107,917 17.5 26.8% differences—of race, ethnicity, and gender—are distributed similarly in the bureaucracy to their Chelsea 16,948 48.4 22,870 62.1 34.9% distribution in the represented population. A bureaucracy is reflective when “the personnel who staff Somerville 6,786 8.8 8,173 10.6 20.4% administrative agencies reflect the demographic characteristics of the public they serve” (Sowa & Selden, Sources: Census 2000 and Census 2010 2003, p. 700). The evidence from the research literature suggests three key reasons why inclusion matters.

1 The term “Latino” aggregates persons of Latin American background living in the U.S. Latinos can originate from any one of the 21 First, a representative bureaucracy confers important significant symbolic benefits. Evidence Spanish-speaking nations in North, Central, and South American and the Caribbean. It is a term of ethnicity (not race) and Latinos can be of any race. Portuguese-speaking Latin Americans from Brazil, although often counted as “Latinos,” are not included in this study. indicates that, when the government workforce mirrors the society, it suggests that everyone is included and The terms Latinos and Hispanics are used interchangeably.

10 11 lends considerable legitimacy to bureaucracies. Constituents and clients tend to perceive that people who are In short, a municipal bureaucracy that reflects the demographic characteristics of the public it like themselves will be more empathetic to their needs and circumstances (e.g., Lim, 2006; Marvel & Resh, serves is more likely to govern effectively, while an unrepresentative bureaucracy will be persistently 2013; Smith & Monaghan, 2013). “The composition of government work forces ... serves as an indicator of thwarted in that objective. equality of opportunity and access” and “can promote the legitimacy of government bureaucracies” (Riccucci However, the research on representative bureaucracy also signals that a bureaucrat’s individual racial & Saidel, 1997, p. 423). In one study of government services, even when clients did not directly experience and ethnic characteristics alone are not sufficient for improved outcomes for the under-represented or for empathic understanding from persons of similar race or ethnicity, they still placed value on their presence the development of more effective governance. Whether or not the bureaucrat from the under-represented within the organization (Watkins-Hayes, 2011). group embraces an advocacy role, and whether the institutional context allows the individual to make change, Second, bureaucrats from underserved groups have been observed to yield benefits for their will shape how representation occurs. The literature refers to this action to change policy and practice in communities, and in many instances the benefits are broadly shared with other groups. Overall, ways that improve services to, and outcomes for, a group that was previously under-represented as active the presence of Latinos or Blacks or women in bureaucracies is associated with substantive benefits and a representation (Meier & Bohte, 2001; Wilkins & Williams, 2008). Substantive effects seem to require the decrease in disparate treatment for the group that is better included. Theobald (2004 pp. 8, 20–21), for presence in the bureaucracy of persons from under-represented groups—together with a broad example, documented how in California the presence of Latino decision-makers was associated with commitment to the development and implementation of policies that welcome newly-included groups and sustained bilingual education despite declining state support for such programs. Similar findings come from allow change to take place. One or the other alone is likely insufficient. studies of teachers in Texas (Meier & Bohte, 2001) and administrators who made loans at the Farmer’s Home Below, we present the evidence on inclusion in Boston, Chelsea, and Somerville. Each city falls short Administration (Sowa & Selden, 2003) among others. on the inclusion —i.e., the reflective representation —of Latinos. Recognizing that the simple inclusion of Lati- Research also shows that inclusive bureaucracies are more responsive and accountable to the no persons in the bureaucracy is at once a fundamental and an insufficient step toward active representation, citizenry, are more successful at meeting public needs, and/or demonstrably improve outcomes—either we conclude with strategy recommendations to maximize the potential for Latino city workers to become for the now better-represented groups or for the public at large (Evans, 1974; Riccucci & Saidel, 1997). For active representatives and for bureaucracies to transform in ways that serve Latino and all residents more example, in a study of large, multi-racial Texas school districts, student performance improved for Anglos, African effectively. Americans, and Latinos when the percentage of African American and Latino teachers was increased (Meier, Wrinkle, & Polinard, 1999). In this and other instances documented outcomes for all groups improve after passive representation of groups of color is increased (Meier, McClain, Polinard, & Wrinkle, 2004; Meier, Wrinkle, & Polinard, 1999).

Scholars whose research reveals a negative relationship between reflective representation and outcomes are in the minority in the representative bureaucracy literature. Their work largely focuses on the issues faced in the process of making the public workforce more diverse. For example, Pitts and Jarry describe lessons from the management literature showing “consistently that process-oriented difficulties in diverse work groups lead to performance issues” (Pitts & Jarry, 2007, p. 249).

A third reason why inclusion matters is that an unrepresentative bureaucracy is unlikely to pursue changes to policies, programs, and practices that are necessary to remedy inequitable outcomes and serve particular needs of under-served and under-represented communities. Research indicates that, in general, bureaucrats from majority groups less readily use their “discretion to act on behalf of minority clients” (Marvel & Resh, 2013, pp. 9–10).

12 13 II. The Study the appropriate departments.

The Silent Crisis: Involving Latinos in Decision-Making & Why Latino Representation Matters seeks to • The analysis of representation in the cities’ boards, commissions, and authorities began with document the representation of Latinos in city government in three Eastern Massachusetts cities where the development of a listing of all boards and commissions, classifying these by types based on their significant number of Latinos reside. It focuses on reflective representation, that is, the type of representation mission. We determined the appointing authority and any restrictions on the membership for each that seeks to reflect the demography of a certain group or population. It explores the reflective representation board or commission in order to ascertain the degree of discretion in appointments permitted by the of Latinos in the city governments of these cities by focusing on the following questions: charter, trust, or ordinance governing them. There is a wide range of types of boards and commissions What is the level of representation of Latinos in executive positions in the government of the cities of Boston, operating in cities across the nation and, indeed, types and definitions of types varied across the three Chelsea, and Somerville and does it reflect the proportion of Latinos in the overall population of these cities? cities focused upon in this report. We classified boards and commissions in the following way:3

What is the level of representation of Latinos on boards and commissions in the government of these three o Advisory: provide advice to city policy-makers, conduct research, and provide residents’ or cities and does it reflect the proportion of Latinos in the total population of these cities? professionals’ perspectives on an issue.

4 The study defines representation of Latinos in executive positions in city government and o Managerial : have administrative duties, have oversight or supervisory responsibilities, may allocate among members of boards and commissions in relation to the representation of Latinos in the overall funding within some programs, and are authorized to develop policy in specific areas. population of the cities. We define under-representation as the level of representation in government bodies o Regulatory: quasi-judicial bodies that exercise regulatory authority, have power to make rulings and that fall below the proportion of Latinos in the population of each city and full representation as the level of impose penalties based on the city’s laws, and are authorized to develop policy in specific areas. representation that is near to, or equal to, the proportion of Latinos in a city’s population. A representation o Trustee: boards that act as trustees over city trust funds. gap was identified when there was a difference between the proportion of Latinos in the population and their Non-profit boards of directors: have managerial and fiduciary oversight of non-profits affiliated representation in city government bodies and positions. It was measured as the difference in percentage o with city departments. points between the proportion of Latinos in the population and in the city government bodies and positions. The current membership of boards and commissions was obtained primarily through public information The research uses publicly available data and phone interviews conducted with government officials available from each city and through interviews with staff in each of the cities. The identification of Latino in the three cities to develop demographic profiles for each of the cities and identify city departments and persons in executive positions and as members of boards and commissions relied on their surnames, their leadership and boards and commissions and their memberships. The following sources of information checked against the U.S. Census list of Spanish surnames.5 For a fuller description of the approach and were used: data see Appendix 1. • For our demographic analysis, we use data from the U.S. Census Bureau, specifically, the 2000 and 2010 Decennial Censuses, the American Community Survey 5-Year Estimates for 2007–2011 and 2008–2012, and the American Community Survey 2007–2011 Public Use Microdata Samples (PUMS).2

• For the analysis of representation in executive positions in city government, we use listings of city departments available in each city’s website. The name of the occupant of leadership positions in each department was obtained from public sources such as websites and the press and by phone inquiries to 3 To arrive at these definitions we considered those that appeared in the 1994 charter of the city of Chelsea, MA (https://library. municode.com/index.aspx?clientId=14939) and those offered by for Washington D.C. by Collins (n.d.). 2 Data collected and reported under the 2010 Decennial Census represent a direct counting of people and households. Data collected under the American Community Survey are estimates of population characteristics and are useful in order to capture “snapshots” of the 4 In the City of Chelsea, this type of board or commission is called “Ministerial.” We use the term Managerial for the purpose of uniformity. social, demographic, education, and housing characteristics of Latinos. (Since the ACS data are estimates, margins of errors are reported for values; these are available on the American Fact Finder website.) Information about other groups may be included for the purpose 5 The Census list of Spanish Surnames may be accessed at: http://fcds.med.miami.edu/downloads/dam2011/25%20Appendix%20 of comparison. E%20Census%20List%20of%20Spanish%20Surnames.pdf

14 15 BOSTON

III. Representation in Executive Positions and on Boston is the Massachusetts city with the largest population of Latinos. As reported in the U.S. Boards and Commissions in the Governments of Census Bureau’s Decennial Census of 2010,6 the Latino population of Boston is 107,917 persons. This Boston, Chelsea, and Somerville represents 17.5% of the total population of Boston, 617,594 persons. In the previous Decennial Census (2000), Latinos had counted 85,089 persons; thus the Latino population grew by 26.8% between the two counts. In A summary of the findings on the representation of Latinos in executive positions and on boards and contrast, the city’s overall population grew by only 4.8% between 2000 and 2010. commissions in city government in Boston, Chelsea, and Somerville shows that there is a gap between the

presence and growth of Latino communities and their representation in the halls of government and public • Half a Century in Boston. Although there have been Latinos in Boston since the late 1800s, the agencies. Table 2 shows the proportion of Latinos in the population of each city and in the ranks of executive contemporary Latino community began to form during the 1950s and 1960s, as migrant Puerto Rican positions and the membership of boards and commissions in the governments of the three cities. In each agricultural and industrial workers settled in the city. Latinos started their settlement in city, there is definite and measurable under-representation of Latinos, both among persons holding executive Boston’s South End, moving into Roxbury, North Dorchester, and Jamaica Plain as redevelopment positions and among those who are members of boards and commissions, in relation to the representation pressures pushed them out of the South End in the late 1960s and early 1970s. Today, Latinos of Latinos in the overall population of the cities. concentrate in East Boston, Dorchester, Mission Hill–Jamaica Plain, Roxbury, and Roslindale. The largest number of Latinos in the city lives in East Boston, where they make up 52.9% of the population of the Table 2. Representation of Latinos in Executive Positions and on Boards and neighborhood (Lima, Melnik, & Borella, n.d.). Commissions in City Government. Boston, Chelsea, and Somerville, 2014

Boston Chelsea Somerville Proportion of Latinos in the population 17.5% 62.1% 10.6% Proportion of Latinos in executive positions in city government 7.5% 14.3% 0.0% Proportion of Latinos in the membership of board and 7.1% 10.9% 1.7% commissions in city government

The difference between the representation in the population and the representation in both executive positions and as members of boards and commissions was widest in Chelsea, where 62.1% of the population is of Latino origin but only 14.3% of the executive positions and 10.9% of the slots on boards and commissions are held by Latinos, indicating a significant gap between the Latino population and its representation in government. In contrast, in Boston, where the proportional representation of Latinos among those in executive positions and those on boards and commissions is lower than in Chelsea, the representation gap is narrower because the proportion of the Latino population in Boston is much smaller. In Somerville, we found absence of any representation of Latinos in executive positions and a minimal representation as members of boards and commissions in city government.

6 In this section of the report, population data are drawn primarily from the U.S. Census Bureau’s 2010 Census, with some comparison data from the 2000 Census (http://factfinder2.census.gov). Additional information is from the U.S. Census Bureau’s American Community Survey (ACS), or compiled by city agencies (Boston Housing Authority, Boston Redevelopment Authority, and Boston Public Schools).

16 17 Figure 1. Concentration of Latinos in Boston by Neighborhood and Census Tract, 2010 The ACS 2008–2012 data indicate that the overwhelming majority (84.4%) of Latinos over 5 years of age speak Spanish at home and about 1% speak another language (such as Central and South American indigenous languages). Approximately 14.6% speak only English at home. Nevertheless, most Latinos report that they speak English well or very well (58.9%). Only 26.2% of Latinos report not speaking English well or at all.

• Young and Looking for Educational Opportunity. Perhaps one of the most salient characteristics of Boston’s Latinos is that it is a very young population. According to the 2010 Decennial Census, the median age for Latinos in Boston is 27.5 years compared to 31.2 for White persons, 32.8 years for Blacks and 29.8 years for Asians in the city. A full 29.2% are children under 18 years, compared to Blacks in the same age category, at 26.6%; Asians at 14.8%; and Whites, 11.8%. The share of children in the Latino (and Black) population in Boston is more than twice the proportion of children found in the other groups, highlighting the importance of educational opportunities for Latinos in Boston. Latinos account for 30% of Boston’s children under 18, 29% of those under 5 years of age, and 30.6% of those of school age.

Latinos today make up the largest enrollment in the Boston Public Schools. In the 2012–2013 school year, 22,840 Latino students attended the Boston Public Schools, accounting for 40% of the total enrollment in the district. Of all the racial-ethnic groups in the city, Latinos and Asians rely most heavily on the Boston Public Schools. In the same school year, 87.7% of all Latino children of school age attended the Boston Public Schools; this compared to 86.4% among Asians, 68.9% among Blacks, and 52.8% among whites (Boston Public Schools, 2013b).

Latinos have a high stake in the future of the Boston Public Schools. This is so not only because of Latinos’ reliance on the district’s schools but also because of the dismal outcomes of Latino children in them. Map generated with GIS software, using data from the U.S. Census Bureau Decennial Census 2010, on the basis of city boundaries, For the last six years, Latino students have shown the lowest four-year high school graduation rates (Boston census tract boundaries for 2010, and planning districts determined by the Boston Redevelopment Authority. Bing maps were used as a layer for showing additional geographic context. Public Schools, 2013a) and the highest overall annual dropout rates for both boys and for girls in the district (Boston Public Schools, 2013d). Their scores on standardized tests are also disappointing; Figure 2 shows the • Migrants and Immigrants. According to the 2010 Decennial Census, Puerto Ricans compose the MCAS ELA and Math scores for Grades 3, 7, and 10 for the last three years. These show that although there largest group of Boston Latinos at 28.2%, followed by Dominicans (25.7%), Salvadorans (10.4%), has been improvement in the outcomes for Grade 10 Latino students, all other scores are stable or declining. Colombians (6.9%), and Mexicans (6.0 %). The remaining quarter of the Latino population is composed of small In all cases, Latino scores are the lowest or second to the lowest of all racial-ethnic groups in BPS (Boston numbers of Guatemalans, Hondurans, Cubans, Peruvians, Venezuelans, Costa Ricans, Ecuadorians, Public Schools, 2013c). Panamanians, Argentineans, Chileans, Bolivians, Uruguayans, Nicaraguans, Paraguayan, and others.

With the exception of Puerto Ricans, who are U.S. citizens at birth (even when born in Puerto Rico) as a result of the Jones Act of 1917, all Latino groups immigrate to this country and this region. Among Boston Latinos, an estimated 42.6% are foreign-born and of these, about one third are naturalized citizens, according to the American Community Survey’s (ACS) 2008–2012 5-year sample. About 9% of Latino children under 18 years of age are foreign-born.

18 19 Figure 2. MCAS Outcomes in English Language Arts (ELA) and Math for Latino • The Challenge of Jobs, Income, and Poverty. Latinos come to Boston to work and work they do, albeit Students in Grades 3, 7, and 10. Boston Public Schools, 2010–2012 at a wage level that keeps them in or just above poverty. According to the 2010 Decennial Census, Latinos have a very high rate of labor force participation at 70.2%; this compares to 70.1% for White workers. The 100 2010 90 largest proportion of Latinos work in service occupations (37.8%) and in sales jobs (23.3%), primarily in indus- 2011 80 tries devoted to education and health (25.7%) or recreation, accommodations, and entertainment (17.5%). 70 2012 Twenty- two percent of Latinos work in managerial occupations. An overwhelming proportion of Latinos are 60 wage earners (87.9%); only Asians have a larger proportion at 90.8%. About 3.4% of Latino are self-employed. 50 40 30 20 The type of work that Latinos do and the industries in which they labor in Boston have led to lower 10 median earnings for full-time year-round workers (both male and female). Overall, Latinos have among the 0 ELA Gr 3 ELA Gr 7 Math Gr7 ELA Gr 10 Math Gr 10 lowest household and family median incomes when compared to other racial-ethnic groups in the city. The 2010 Decennial Census indicates a rate of poverty among Latino persons of 29.8%, second only to the rate Source: Boston Public Schools (2013c) among Asians (29.9%). Poverty among Latino families is, at 28.9%, the highest among all groups. Among families with children under 18 years of age, the poverty rates are also the highest (28.6%), as are the poverty rates The overall situation and outcomes of English Language Learners in BPS, of whom Spanish-speakers among Latino children, a full 40% of whom are poor. make up about 60%, has also raised great concern (Uriarte et al., 2011). Outcomes for ELLs have improved in the last three years, and are particularly encouraging for students at the higher levels of English proficiency In Sum… there is no doubt that Latinos in Boston have a very high stake in a well-functioning city (Boston Public Schools, 2013c). Nevertheless, the district is still under the oversight of the Department government. Latino children are the largest constituents of the Boston Public Schools. They, along with of Justice and the Department of Education’s Office for Civil Rights as a result of the serious gaps in the Black children, would be the most benefitted by well-functioning youth programs and by programs for identification of students needing language support, the quality of the services provided to them, and the children and families. With their large proportion of renters, Latino households have a large stake in the training of teachers of ELLs (U.S. Department of Justice, 2010). stabilization of rents and the availability of affordable housing in the city. And as the largest block of tenants in the Boston Housing Authority, they have a stake in public housing that functions well. Latinos also benefit • Housing Vulnerability. According to the 2010 Decennial Census, 19% of all Latinos live in owner-occupied from strong economic development initiatives at the neighborhood level that support small businesses housing units; this compares to 30% for Asians, 31% for Blacks, and 42% for Whites. This lower rate of as well as development in key economic areas in the city as a whole—such as the health, education, and homeownership makes Latinos more vulnerable than other groups to the vagaries of the local rental entertainment industries—so that the number of jobs increases and the salaries grow. Given the growing housing market. In 2013, Latinos made up 44.2% of the tenants of the Boston Housing Authority, the largest presence of Latinos, government agencies working directly or indirectly in the areas of economic racial-ethnic group in the city’s public housing (Boston Housing Authority, 2013).7 This means that development, housing, education, health and human services, and public safety will likely be successful in approximately one tenth of all Latinos in Boston are public housing residents. Using the definition of their missions only if they can effectively address the needs of all the residents of Boston, including Latinos. overcrowding as 1.01 or more occupants per room, according to the American Community Survey 2006–2010 5-Year Estimates, a higher rate of Latinos live in overcrowded housing (6.5%) than any other racial/ethnic group in the city (the next highest level reported is for Asians, at 5.7%). ACS 2006–2010 data also show that Latino Representation in City Government in Boston almost half of the Latino renters (49.7%) report gross rents that are more than 35% of their household in- Although there are many perspectives on the effectiveness of representation to address the specific come, the highest proportion of all groups; the next highest level reported is for Blacks renters, 49.1% of demands of under-represented groups, there is agreement that representation (both at the high levels and whom pay more than 35% of their household income in rent. at levels close to the recipients of the services) will tend to make government more responsive, accountable, and successful at meeting public needs. This will benefit not only the under-represented group but also 7 Boston Housing Authority (BHA) data provided on April 17, 2014 by Lydia Agro, Director of Communications and Public Affairs. Data does not include Mission Main and Orchard Gardens but includes all public housing that the BHA fully owns and directly oversees/manages.

20 21 the public at large.8 In Boston, where Latinos are a sizeable population and a large user of city-sponsored • Representation of Latinos in Executive Positions in City Government services, knowledge about the characteristics of this population and the ways to best enhance the impact of city On January 29, 2014, Mayor Martin Walsh unveiled the new structure for his administration. It showed services would improve the effectiveness of city services, not only for Latinos but for all people and a much smaller cabinet than operated in the previous administration, and departments under each of the communities in Boston. cabinet chiefs. Figure 3 shows the Mayor’s staff and the new cabinet. By March 1, 2014, when the data Ascertaining the presence of Latinos in high-level posts in the government of the City of collection for this study ended, the cabinet included 5 senior members of the Mayor’s staff and 10 chiefs.11 Boston as well as their presence on boards and commissions attached to city departments has been a The senior members of the Mayor’s staff were the Chief of Staff, the Corporation Counsel, the Chief challenge because of the change in administration that took place in the city in January 2014. After 20 years, Communications Officer, the Chief of Policy, and the Chief of Operations and Administration. None of these Mayor Thomas Menino left office and Mayor Martin Walsh took the reins of the city and moved quickly to senior staff members were Latino. Of the ten chiefs, two were newly appointed by Mayor Walsh: the Chief of reorganize the structure of city government for the purposes of streamlining services and improving Economic Development and a new Chief of Health and Human Services; the Mayor appointed a Latino, Felix collaboration across city offices.9 A diverse Transition Committee heralded the transition of G. Arroyo to the latter position. The remaining eight were either yet to be named or were both permanent and administrations. It organized a network of discussion groups focused on critical issues and areas of city interim re-appointments from the past administration. None of the latter were Latino. government. Each of these groups held relatively well-attended public meetings during December 2013 and Most department heads have been re-appointed from the past administration in a permanent January 2014 and produced a report in April 2014.10 or interim capacity, but a few are new permanent or interim appointments. Figure 4 shows the chief The new administration did not undertake a sweeping replacement of key posts, but did make some executive postions in the city administration. Departments are shown in solid figures and independent critical and visible appointments meant to create a diverse group of leaders and, thereby send a message and quasi-independent agencies are shown in outline figures; the latter include the Boston Public Health about its commitment to inclusion. Most notable among these were the appointments of Felix G. Arroyo Commission, the Boston Housing Authority, the Boston Redevelopment Authority, and the Boston as Chief of Health and Human Services, of William Gross as Boston Police Superintendent, and of John Water and Sewage Commission. Magenta figures indicate Latino appointees. Barros as Chief of Economic Development (Anderson & Cramer, 2014; Lowery, 2014; Ryan, 2014). Arroyo, a Appendix 2 presents all the departments and the department heads. Of the twelve areas portrayed, former City Councilor of Puerto Rican background, and Barros, of Cape Verdean background and the former only two included Latino department heads: Health and Human Services and Housing and Neighborhood executive director of a successful community development corporation in Roxbury–North Dorchester, Development. Latino department heads in Health and Human Services included the head of the Office for had run against Walsh in the primaries and supported him in the general election. Gross, the Police New Bostonians, who was appointed on an interim basis and then hired permanently, the head of Veterans’ Department’s night commander, became the first African American to serve as Superintendent in Chief of Services and the head of the quasi-independent Public Health Commission; the latter two served in the the Boston Police Department. previous administration and were re-appointed. The head of the Office of Business Development in Housing Because of the newness of the Walsh administration, the analysis of the representation of Latinos and Neighborhood Development is also Latino and was also reappointed from a previous administration. in executive positions and on boards and commissions in the City of Boston is in many ways (and hopefully) The summary of the representation in executive positions in the government of the City of Boston a work in progress for this administration. appears in Table 3. The data shows that there is definite and measurable under-representation of Latinos among persons holding executive positions in the government of the City of Boston. There is a wide difference between the representation of Latinos in the population of the city (17.5% of total population) and their representation among senior staff, cabinet chiefs, and department heads (7.5% of executive positions). 8 There are relatively few scholars whose research reveals negative outcomes from processes of racial-ethnic inclusion, although Pitts and Jarry (2007) describe lessons from the management literature, which shows “consistently that process-oriented difficulties in diverse work groups lead to performance issues” (p. 249).

9 See announcement: http://www.cityofboston.gov/news/default.aspx?id=6503 and new organizational chart: http://www.cityofboston.gov/government/images/Organizatio nal%20Chart.jpg

10 The full membership of the Walsh 2014 Transition Committee is available at: http://www.boston14.org/transition-committee. A copy of the report is available at: http://www.cityofboston.gov/images_documents/Walsh-Working-Group-Re- ports-041614_tcm3-44455.pdf. Both Jennings and Uriarte, authors of this report, were members of transition committee working groups (Economic Development and Human Services). 11 The Walsh Administration has made a number of new appointments since March 2014 that may not be covered in the current study.

22 23 Figure 3. Mayor’s Staff and Cabinet Chiefs. Boston (as of March 1, 2014) 12

Mayor

Chief of Staﬀ

Policy Communication

Operations & Corporation Administration Counsel

Arts & Economic Education Environment Finance & Health & Housing & Public Information Street, Culture Development Energy & Open Budget Human Neighborhood Safety Transportation Spaces Service Development & Sanitation

12 Figure in magenta indicates a Latino appointee. Figures in blue indicate new appointments; gray figures represent persons reappointed from the past administration on either an interim or permanent basis; purple figures indicate vacant positions.

24 25 Figure 4. City Departments. Boston (as of March 1, 2014)13

Intergov Labor Neighborhood Prop/ Const Health Ins Human Res Relations Relations Retirement Services Management

Street, Transport & Operations Sanitation Public Works Transport Parking Boston Bikes BWSC & Adminstration

Public Emergency Safety Services Fire Police

Cable Info & Information Comm Tech

Oﬃce of Real Estate Housing & Policy Dev Boston Nei Housing Business Management Neigh Dev & Reseach Home Ctr Develop Development & Sales BHA

Health & Comm Human Animal Care Disablities Aﬀairs of Food Oﬃce of New Veteran’s Youth Fund/ Women’s Public Health Service & Control BCYF Civil Rights Comm Elderly Initiative Bostonians Services Council Comissions Comission

Mayor Finance & Budget Assessing Auditing Budget Purchasing Registry Treasury

Env, Energy & Open Inspectional Parks & Spaces Environment Services Recreation Law Small & Local Education School Business Enterprise / Consumer Tourism Boston Economic Aﬀairs Jobs & Comm & Special Residents Jobs Development Services Events Policy BRA Elections & Licensing

Arts & Public Culture Library

13 Solid figures are departments and outlined figures are independent or quasi-independent agencies such as the BRA, the Public Health Commission, etc. Magenta figures indicate Latino appointees.

26 27 Table 3. Representation in Executive Positions. Boston (as of March 1, 2014) • The largest number, 22, were regulatory bodies focused largely but not exclusively on zoning, urban design, and historic preservation, primarily under the Boston Redevelopment Authority and the Number of Latinos Percent of Appointments Department of the Environment. Positions Appointed Who Are Latino Senior Staff 5 0 0% • 5 boards managed trusts bequeathed to or established by the city, including the distribution of trust Cabinet Chiefs 10 1 10% funds. Boards of trustees and committees support the Treasury Department’s management and Heads of Departments, Independent and 51 4 7.8% Quasi-Independent Agencies distribution of funds from trusts for the residents of Boston as well as housing funds from linkage. Total 66 5 7.5% • There were also 4 independent non-profit agencies charged with raising and distributing funds to city projects. These non-profit agencies were affiliated with city departments and included the Fund for Parks • Representation of Latinos on Boards and Commissions in City Government and Recreation, the Fund for Boston Neighborhoods, the Freedom Trail Foundation, and the Trustees of

The website for the City of Boston lists 57 different boards and commissions that guide, support, Charitable Donations to Inhabitants of Boston. monitor, or regulate different areas of the government of the city. As is the case in other cities, there did not For the vast majority, the Mayor was the appointing authority. In three cases, the Governor of appear to be wide differences between the definition of a board and that of a commission, in terms of mission Massachusetts appointed members to boards and commissions in Boston. In most cases, the appointing or membership. Appendix 3 lists all the boards and commissions listed in the city’s website, their mission, type authority had limitations on its discretion to select members. In some cases the restrictions were minimal (for of board or commission it represents, its appointing authority, and any restrictions on the membership. Their example, that the person be a resident of the city). But in others, the ordinance or trust that created the board missions vary broadly: some have very clear mandates to develop and enforce regulations or to set policy and or commission required very specific representation—for example, the Treasurer or a member of the City monitor its execution in specific areas, while others respond to a broader advisory charge. Council—or leaders of well-known organizations (for example, the president of the Chamber of Commerce or

We have categorized the types of boards and commissions based on their mission as stated in the the president of a professional organization such as the Boston Society of Architects). Appendix 3 details the city’s or the specific board’s website and, in the case of the non-profit entities included in the list, their 990 specific restrictions, although these were not available for all the entities. IRS forms.14 When these were unavailable, we relied on the statutes, charters, trust documents, or ordinances The focus of this report is on those boards and commissions that call for the participation of the that created them (when these were accessible) and on the information contained in the American Legal public. To accomplish this, we narrowed the scope of the analysis, first, by excluding those boards and Publishing Corporation’s listing of the City of Boston Municipal Code.15 The information is not complete, but it commissions that were considered “inactive” and those whose membership restrictions were such that they does provide a good understanding of the charges of these boards and commissions. Among the 57 boards left no discretion to the appointing authority. A full discussion of the criteria for inclusion/exclusion appears in and commissions:16 Appendix 1; boards and commissions that were excluded are noted in the listings of boards and commissions • 12 were advisory bodies that provided advice to the Mayor, the City Clerk, or departments on a variety of for each of the cities in Appendices 3, 5, and 7. issues including archives and records, youth, persons with disabilities, salaries of city employees, and the Once inactive boards and commissions and those that offered no discretion to the appointing functioning of the Boston Housing Authority. authority were removed, 47 boards and commissions remained. The final listing of boards and commissions, • 12 were managerial bodies with policy, oversight, fiscal, and monitoring authority over agencies such organized by area and department under which it operates, appears in Table 4. It includes information on the as the Boston Public Library, the Boston Public Schools, the Boston Public Health Commission, and the appointing authority, summarizes the restrictions on the membership, and details the number of seats on the Boston Housing Authority. board or commission and the number of seats occupied by a Latino.

Seats on Boards and Commissions and Latino Appointments. In the 47 boards that remained, the types

14 Categorization decisions were informed by the typology offered by Collins (n.d.). of boards and commission retained a similar proportion as those of the full group: regulatory boards retained

15 Available at: http://amlegal.com/nxt/gateway.dll/Massachusetts/boston/cityofbostonmunicipalcode?f=templates$fn=default. the largest representation (20) followed by managerial boards and commissions (12), those with an advisory htm$3.0$vid=amlegal:boston_ma mission (7), trusts (4), and boards of non- profits affiliated with the city (4). As with the appointments overall, 16 The nature of three of the boards was not determined due to lack of information. These were: the Board of Examiners in the Department of Inspectional Services, the Public Facilities Commission in the Department of Neighborhood Development, and the Freedom Trail Commission in the Department of Public Works. the Mayor was the appointing authority for the large majority of the remaining boards and commissions

28 29 Table 4. Membership of Active Boards and Commissions by Department and Cabinet Board of Review Regulatory 3 0 Assessing Area. City of Boston Audit Committee Managerial 5 1 Edward Ingersoll Browne Trust Fund Committee Advisory 3 0 Total Latino Cabinet Department Board /Commissions/Trust Funds Type # of Neighborhood Housing Trust Trustee 7 0 Members Seats City of Boston School Trust Fund Trustee 7 1 Treasury City of Boston Scholarship Fund Arts and Culture Trustee 1 Scholarship Committee 9 Boston Arts Commission Managerial 5 1 Trustees of Charitable Donations Non Profit 0 Boston Cultural Council Managerial 9 2 to Inhabitants of Boston Board Trustees 12 Public Library Board of Trustees Managerial 9 2 Health and Human Services Boston Public Health City Clerk Board of Health Managerial 1 Commission 7 Archives and Records Advisory 0 Advisory Committee 9 Civil Rights Boston Fair Housing Commission Managerial 5 0 Commission for Persons Boston Disability Advisory Commission Advisory 0 Economic Development with Disabilities 9 Small and Local Youth Fund/Youth Boston Employment Commission Managerial 7 0 Youth Council (Representatives) Advisory 6 4 Business Enterprise Council 85 Non-profit Tourism and Special Fund for Boston Neighborhoods, Inc Housing board of 0 Events Board of Directors 7 Trustees Boston Housing Authority Boston Housing Managerial 9 2 Jobs and Monitoring Committee Neighborhood Jobs Trust Trust 3 0 Authority Community Services Resident Advisory Board Advisory 30 6 Board of Directors Regulatory 5 1 Law Boston Boston Zoning Commission Regulatory 11 1 Elections Boston Elections Commission Regulatory 4 0 Redevelopment Boston Civic Design Commission Advisory 11 0 Authority Operations and Administration Boston Industrial Development Managerial 0 Finance Authority 5 Human Resources Boston Compensation Advisory Board Advisory 5 0 Property and Construc- Education Residency Compliance Commission Regulatory 0 tion Management 7 School Department Boston School Committee Managerial 7 1 Streets, Transportation and Sanitation Environment, Energy and Open Space Public Works Freedom Trail Commission NA8 4 0 Air Pollution Control Commission Regulatory 0 5 Boston Water and Board of Commissioners Managerial 3 0 Boston Landmarks Commission Regulatory 91 0 Sewage Commission Aberdeen Arch Cons District Regulatory 52 0 Other Agencies Back Bay Arch District Regulatory 3 0 Boston Finance 9 Commissioners Managerial 0 Commission 5 Bay State Rd / Back Bay West Regulatory 52 0 Cons District Boston Licensing Board Board Members Regulatory 3 1 4 Environment Bay Village Historical District Regulatory 5 0 Total 395 28 Beacon Hill Architectural Commission Regulatory 53 1 2 Fort Point Channel Landmark District Regulatory 5 0 Notes: Mission Hill Triangle Arch Cons District Regulatory 5 0 Sections in purple denote independent or quasi-independent agencies. When a position is occupied by a Latino, the corresponding cell in the “Latino” column is highlighted in magenta. Sections in purple denote independent or quasi-independent agencies. South End Landmark District Regulatory 42 0 1 St Botolph Arch Cons District Regulatory 5 0 In addition to the members there are 9 alternates on the commission. 2 There is one alternate named to this commission Boston Conservation Commission Regulatory 7 0 3 0 There are 5 alternates named to this commission Inspectional 4 There are 3 alternates named to this commission Zoning Board of Appeals Regulatory 5 Services 7 2 5 There are 5 substitutes named to this commission substitutes 6 As of March 1, 2014 there were only 30 persons in the council. Non Profit Fund for Parks and Recreation, Inc 3 0 7 NA (not available) indicates that no information was found. Parks and Recreation Board Parks and Recreation Commission Regulatory 6 0 Finance and Budget

30 31 Table 5. Representation on Active Boards and Commissions. Boston (as of March 1, 2014) are the most numerous racial-ethnic group in the district, yet there is only one Latino on the Boston School Committee and only 10% of the teachers, 13% of the principals, and 14% of central office employees are Percent of Percent of all Latino Number of # of Latinos Appointees Appointments Latino (BPS, 2013b).17 The consequences for both Latino students and for the district have been Seats Appointed Who Are Latino significant: Latino children underperform academically and the district has drawn the attention of the All Boards and Commissions 395 28 7.1% 100% Advisory Boards and Commissions 152 10 6.6% 35.7% federal government for neglecting the educational rights of English Language Learners, the majority of whom, Managerial Boards and Commissions 76 10 13.2% 35.7% in Boston, are Latinos. Regulatory Boards and Commissions 115 6 5.2% 21.4% Trustee Boards 26 2 7.7% 7.1% Boards of Directors of Non-Profits 22 0 0% 0% CHELSEA

There are only two cities in Massachusetts whose population is overwhelmingly Latino. One is

The appointing authorities had the responsibility for filling 395 seats on the 47 boards and Lawrence and the other, Chelsea. In both places the growth of the Latino population has represented an enormous asset in that the total population would have declined if not for Latino growth. The total population commissions working with departments in the City of Boston. By far the largest number of seats were on of Chelsea changed little between 2000 (35,080 persons) and 2010 (35,177 persons). But the Latino boards and commissions associated with the Health and Human Services and Environment, Energy and population increased from 16,964 persons in 2000 to 21,855 persons in 2010, an increase of 28.8%.18 Thus, if Open Space departments; the 85 seats in the Youth Council and the 85 seats in the Boston Landmarks not for Latinos, the total population of Chelsea would have dropped noticeably. Commission and its affiliated Historical and Architectural Conservation Districts made them the largest bodies considered here. Of the 395 total seats, 152 or 38.5% were on advisory boards and commissions, 115 or 29.1% on Today, Latinos compose 62% the city’s total population and, as is often the case, they are distributed regulatory bodies, and 76 or 19.2% on managerial boards and commissions. Twenty-six or 6.6% were trustee unevenly across the city. Figure 5 shows the proportion of Latinos in Chelsea census tracts in the Decennial seats in bodies charged with managing and distributing trust funds, and 22 or 5.6% were seats on boards of Census of 2010. The map illustrates that a few areas claim a much higher proportion. The area in and near non-profit agencies associated with city departments. Chelsea Square, for example, claimed a Latino population of 82% in 2010.

Among the 395 potential seats on boards and commissions in Boston, Latinos occupied 28 seats, or • Immigrant. As was the case in Boston, Latinos in Chelsea include a mix of new and old immigrants. 7.1%. This proportion, compared to Latinos’ 17.5% representation in the population of the city, signaled a Among Latinos age 18 and over, three quarters (75.5%) are foreign-born, and one quarter are definite and measurable under-representation. The highest number of Latinos (10 each) sat on advisory and native-born according to the American Community Survey’s 2008–2012 5-Year Estimates. There is a managerial boards; in fact they were best represented on the managerial boards, on which they held 13.2% generational split in terms of who is foreign-born, however. For example, the overwhelming majority of all seats across boards as diverse as the Board of Directors of the BRA, the Boston School Committee, the of young Latinos and Latinas (under 18 years of age) are native-born (89.1%). But the proportion of Boston Arts Commission, the Public Library, and the Board of Health. Their representation on regulatory and foreign-born among the young also varies by gender: less than ten percent (8.9%) of all Latino males trustee boards and commissions was very low and they had no presence as members of boards of directors under 18 years of age, and 13.4% of all Latinas in the same age category, are foreign-born. of non-profits associated with city departments. Only 16 of the 47 boards and commissions examined here included any Latino representation. According to the ACS 2008–2012 5-Year Estimates, a third (33.9%) of all Latinos in Chelsea are Salvadorans; they are followed far behind by Puerto Ricans (19.2%), Hondurans (16.6%), Guatemalans (11.3%), In Sum… The analysis of the representation of Latinos in executive positions and on boards and Mexicans (7.1%), Dominicans (3.3%), Colombians (2.4%), and other Latino groups. In contrast, in Boston, the commissions in the government of the City of Boston shows that Latinos are under-represented among both: largest Latino-origin groups hail from the Caribbean (Puerto Ricans and Dominicans) while those in Chelsea they serve in numbers well below their representation in the population of the city. As we will describe below, are primarily from Central America. this lack of inclusion has consequences not only for Latinos—whose contribution is minimized and whose needs may not be effectively addressed as a result—but also in the overall functioning of city government 17 It should be noted that there is also only 1 Latina on the search committee for the next superintendent of the Boston Public Schools. and its agencies. Perhaps it is at the level of the individual agencies that the reality of under-representation 18 In this section of the report, population data are drawn primarily from the U.S. Census Bureau’s 2010 Census, with some comparison data from the 2000 Census (http://factfinder2.census.gov). Additional information is from the U.S. Census Bureau’s American is most jarring and most salient. For example, in the Boston Public Schools, at 40% of the enrollment, Latinos Community Survey (ACS), or compiled by city agencies (Chelsea Housing Authority).

32 33 Gaps in English language fluency in the population reflect the strong immigrant composition of • A Young Population and Large Families. According to the 2010 Decennial Census the median age for Chelsea’s Latinos. According to the ACS 2008–2012 5-Year Estimates, 7.6% of all Latinos age 5 and over speak Latinos in Chelsea is 27.9 years. But for (non-Latino) Whites the median age in the city is 47.9 years. only English. The overwhelming majority (92%) speak Spanish. In the latter category, slightly more than one This seems to be a city of younger Latinos (though not as young as the Latino population in Boston, for third (35.1%) also speak English “very well” and another 21.5% speak English “well” based on self-reporting in instance), and graying Whites. In a further indication of generational splits between Latinos and the this survey. And 43.4% of all Latinos who speak Spanish report speaking English either “not well” or “not at all.” small minority of Whites, one fifth (20.8%) of all Latinos are children 17 years and under. While 31% This indicates a continuing need for language services in this city. of Latinos in households are under 18 years of age, the figure for non-Latino Whites is 13%. This may present a challenge to Chelsea in terms of designing services both for young people of one ethnicity and for older residents of another ethnicity.

Latinos in Chelsea tend to reflect very large families, with an average household size of 3.72 persons reported in the 2010 Decennial Census. This is a relatively high household average for the entire state, not just Chelsea. More than three quarters (78%) of all Latino households in this city are family households, and Figure 5. Proportion of Latinos by Census Tract. Chelsea, 2010 63.6% of these contain four or more persons. Of all Latino families in Chelsea, 46% are husband-wife; 37% are female-headed with no husband present; and 17% are male-headed with no wife present.

• Housing Vulnerability. Clearly, the type of housing needed to accommodate this population is different than in places where the dominant households are smaller in size. ACS 2008–2012 5-Year data indicate that Latinos have a homeownership rate of 20.2% in Chelsea. In a potential sign of overcrowding, 16.8% are in housing with 1.01 or more occupants per room. Latinos compose 61% (551 persons) of all residents in Chelsea Public Housing (Chelsea Housing Authority, 2014).

• Schooling and Education. When educational attainment is examined, the American Community Survey 2008 – 2012 reports that more than half (56.4%) of all Latino males who are 25 years and over have less than a high school diploma; the figure for Latinas in Chelsea is 49.5%. Only 4.6% of all Latino males who are 25 years and over have attained a bachelor’s degree or higher, while the figure for Latinas is 3.5%.

In terms of school enrollment for all Latino persons who are 3 years and over and enrolled in school, 62.6% are enrolled in nursery school, kindergarten, and Grades 1 through 8, according to the American Community Survey 2007 – 2011. Another 22.8% of all Latino persons who are 3 years and over and in school are enrolled in high school Grades 9–12. Latino students accounted for 82.1% of the enrollment of the Chelsea Public Schools in School Year 2013–2014 (MDESE, 2014c). The outcomes for Latino students are mixed. Figure 6 shows the pass rates for Latino students in MCAS ELA and Math in selected grades. As was the case in Boston, we see slight improvements in pass rates in MCAS ELA in Grade 10 but scores in Grade 10 Math and Grade 6 ELA and Math all declined while Grade 3 Reading scores remained stable (MDESE, 2014a). Four-year graduation rates, although still very low, have improved for Latinos in Chelsea High School, from 53.3% in 2011 to 59.8% in 2013. Dropout rates remain very high: 21.7% in 2013, albeit an improvement from 23.7 just two years earlier (MDESE, 2014b). Map generated with GIS software on the basis of city boundaries and census tract boundaries for 2010, using data from the U.S. Census Bureau Decennial Census 2010. Bing maps were used as a layer for showing additional geographic context.

34 35 Both the outcomes of Latino students in Chelsea schools and the low educational attainment of adults Latino Representation in City Government in Chelsea suggest that focus is needed on both, ensuring adequate public school resources for young people, but also In the early 1990s, when Chelsea was on the brink of bankruptcy, the Commonwealth placed the city some attention to adult education opportunities. in receivership. The Governor named a receiver who began to reorganize City Hall and the Fire and Police Figure 6. MCAS Outcomes in English Language Arts (ELA) and Math for Latino Students Departments; the Chelsea Public Schools had been turned over to Boston University in 1988. In 1994, after in Grades 3, 6, and 10. Chelsea Public Schools, 2011–2013 several years of receivership, the city adopted a new charter and began to operate under a government led by an elected City Council and a City Manager, hired by the Council. An array of departments respond to the City 100 2010 Manager and execute the policies developed by the City Council. Unlike Boston’s, Chelsea’s School Committee 90 2011 is elected; it oversees the functioning of the Chelsea Public Schools, which operated under the 80 70 2012 60 50 40 30 20 10 0 Gr 3 Rea Gr 6 ELA Gr 6 Math Gr 10 ELA Gr 10 Math

Source: Massachusetts Department of Elementary and Secondary Education (MDESE) (2014a)

• Working and Poor. Latinos in Chelsea are a working-class population. According to ACS 2008–2012 5-Year Estimates, among the overall Latino population in this city, almost one third (32.8%) work in service occupations; another 28.1% work in production, transportation, and material moving occupations; 17.6% in sales and office occupations (mostly Latinas); 12.8% in natural resources, construction, and maintenance occupations (mostly Latino males); and a low 8.6% in management, business, science, and arts occupations.

This same survey shows that Latino males in Chelsea have a very high labor force participation rate (87.6%) compared to White males (78.2%), while Latinas have a low labor force participation rate (66.7%) compared to their White female counterparts (73.6%). But the ACS 2008–2012 5-Year Estimates also report that Latino males in Chelsea were unemployed at a level of 12%, and Latino females at 16.6%. These are very high rates compared to non-Latino White males at 3.2% and White females at 6%.

Continuing high levels of poverty may indicate that wages are not enough to move families out of poverty, according to ACS 5-year 2008–2012 estimates. Despite the relatively high labor force participation rate for Latinos in Chelsea, the poverty rate is high at 27.4%. Nearly half (48.3%) of all Latinos who are impoverished in this city are aged 17 years and under. The overall median level of household income (adjusted for 2012 dollars) was $48,234. When using per capita income for the same period of time, however, Latinos are reported at $15,572 compared to $21,119 for the overall city of Chelsea.

36 37 Figure 7. City Departments. Chelsea (as of March 1, 2014).19 Boston University / Chelsea Partnership, as the receivership of the Chelsea schools came to be known, until 2008. There is no doubt that, given the size of the Latino population in the city, high-functioning human services, schools, housing authority, economic development, and environmental protection are of great importance to this community.

• Representation of Latinos in Executive Positions in City Government

Figure 7 presents the City Manager and the city’s 12 departments under him. Departments are Chelsea Chelsea Public Housing shown with solid figures and the two independent agencies—the Chelsea Housing Authority and the Chelsea Schools Authority City Public Schools—are shown with outline figures. Magenta figures indicate Latino appointees. Of the 12 Manager departments portrayed, Latinos headed two: the Health and Human Services Department and the Department of Information Technology. Neither of the two independent agencies had Latino leadership. In addition, two divisions within the Health and Human Services Department were headed by Latinos: the Health Department and Veterans’ Services. For the names of the occupants of these positions, see Appendix 4.

The summary of the representation in executive positions in the government of the City of Chelsea appears in Table 6. The data shows that there is definite and measurable under-representation of Latinos City Finance Human Inspectional Health & Law Licensing, IT Planning & Public Retirement Public Clerk Resources Services Human Permitting & Development Works Safety among persons holding executive positions in the government of the City of Chelsea. There is a very Services Consumer Aﬀairs wide difference between the representation of Latinos in the population of the city (at 62.1% of the total population) and their representation among senior staff, cabinet chiefs, and department heads (14.3% of executive positions). Although the Latino representation in executive positions in Chelsea is almost twice that Public Emergency Library Management of the representation found in Boston among similar positions, the gap between the proportion in executive Assesor Chelsea Community positions and the proportion of Latinos in the population of the city is much wider in Chelsea, signaling a Schools stronger exclusion at this level than was observed in Boston.

City Health Fire Auditor Dept Table 6. Representation in Executive Positions. Chelsea (as of March 1, 2014) Veterans Services Number of Latinos Percent of Appointments Positions Appointd Who Are Latino Elder Police Heads of Departments or Independent Agencies 14 2 14.3% Procurement Services Refugee Sub-Departments 14 2 14.3% Services Total 28 4 14.3% Weed Treasure & Collector Seed

19 Solid figures are departments and outlined figures are independent or quasi-independent agencies such as the BRA, the Public Health Commission, etc. Magenta figures indicate Latino appointees.

38 39 Representation of Latinos on Boards and Commissions in City Government Table 7. Membership of Active Boards and Commissions by Department. City of Chelsea (as of March 1, 2014) The 1994 charter of the City of Chelsea delineates with great specificity the boards and commissions Board /Commissions/ Total # of Latino to be formed in the new city government including the type of board or commission each represents, City Manager / Department Type1 Trust Funds Seats1 Members1 its membership, and the person with the authority to appoint them (City of Chelsea, 2012). Appendix 5 City Manager summarizes this information. To the listing provided by the charter we added the Board of Commissioners of Tree Board Advisory 5 NA the Chelsea Housing Authority, an independent public agency. The total number of boards and commissions Chelsea Housing Authority

2 was 19. Of these, the majority were regulatory bodies (9), followed by advisory boards and commissions Board of Commissioners Managerial 5 1 City Clerk / Parking Clerk at 6. Three were managerial20 and 1 was a board of trustees (of the Affordable Housing Trust).21 Of the 19 Board of Registrar of Voters Regulatory 4 0 boards and commissions, four appear to be inactive: the Affordable Housing Trust, the Youth Commission, Traffic and Regulatory 1 Parking Commission 5 the Human Rights Commission, and the Cable Television Advisory Committee. Finance Department In all 19 cases, the City Manager had the primary appointing authority and in 2 cases (the Board of Board of Assessors Regulatory 3 0 Department of Health and Human Services Commissioners of the Chelsea Housing Authority and the Economic Development Board), it was shared with Cultural Council Managerial 5 0 a state official: the Governor in the former case and the Secretary of the Commonwealth’s Executive Office Public Library Board of Trustees Managerial 7 0 of Housing and Economic Development in the latter. Health Department Board of Health Regulatory 5 1 Elder Services Council of Elders Advisory 17 1 Table 7 describes the type, number of seats, and number of Latino members on each of the 15 Chelsea Community Schools Advisory Board Advisory 9 2 boards and commissions that were identified as currently active in Chelsea city government. Of these Licensing, Permitting & Consumer Affairs active boards, 9 were regulatory boards and commissions, 3 were managerial bodies, and 3 were Licensing Commission Regulatory 5 2 Planning and Development Department advisory in nature. There were 92 potential seats on these boards and commissions; the majority of these Conservation Commission Regulatory 5 0 were on regulatory boards, followed by advisory boards. The leanness in the array of active boards and Economic Development Regulatory 5 0 commission in Chelsea denotes both their relative newness (compared to Boston, some of whose boards and Board Planning Board Regulatory 9 1 commissions were created centuries ago) as well as an emphasis on required regulatory bodies to carry Zoning Board of Appeals Regulatory 3 1 out the work of city government. Total 92 10

Notes: Departments marked in purple denote independent or quasi-independent agencies. When a position is occupied by a Latino, the corresponding cell in the “Latino” column is highlighted in magenta. In some cases, the charter described the board’s characteristics as being of more than one type. These are listed above. In those cases, we used in the analysis the type that allowed the most authority (for example, we selected regulatory when the types listed were advisory and regulatory).

1 Information obtained from 1994 city charter that appears in http://library.municode.com/index.aspx?clientId=14939 2 Chelsea Housing Authority Board of Commissioners comes from http://www.chelseaha.com/commissioners-and-meetings.html

20 In the 1994 charter for the City of Chelsea, this type of board is referred to as a “ministerial” board. We refer them as managerial here for the purpose of uniformity.

21 In some cases, the 1994 charter described the board’s characteristics as being of more than one type (for example, advisory and regulatory). In those cases, we used the type that allowed the most authority (for example, we selected regulatory when the types listed were advisory and regulatory) in the analysis below.

40 41 Table 8. Representation on Active Boards and Commissions. Chelsea (as of March 1, 2014) SOMERVILLE

Number of Latinos Appointees Percent of all Latino Unlike the two other cities in this study, Somerville has a relatively small Latino population, but the Positions Appointed Who Are Latino Appointments Latino presence is expanding. Latinos began settling in Somerville in numbers in the 1980s (Ostrander, 2014) All Boards and Commissions 92 10 10.9% 100% Advisory Boards and Commissions 31 3 9.7% 30% as the result of the influx of Central Americans into Greater Boston as war ravaged the region. In 1987, Managerial Boards and Commissions 17 1 5.9% 0 Somerville became one of over three dozen “sanctuary cities” which welcomed refugees from the region, gave Regulatory Boards and Commissions 44 6 13.6% 70% them equal access to city services, and limited inquiries into their immigration status. In 2000, the total population of Somerville amounted to 77,478 persons and Latinos, at 6,689 persons, composed 8.6% of the The summary of the representation of Latinos on boards and commissions in the city government total. By 2010, the total population of Somerville had declined to 75,754 persons, while the Latino population of Chelsea appears in Table 8. Latinos were appointed to 8 of the 15 boards and occupied 10 of the 92 seats increased slightly to 8,017 persons, becoming 11% of the total population. Thus, while the city lost 1,724 per- available, for a representation of 10.9%, as is described in Tables 7 and 8. This contrasts with a representation sons overall, it gained 1,328 persons as a result of Latino growth.22 Latinos became the largest group of the of 62.1% in the total population. Latinos are best represented on regulatory boards, followed by advisory new immigrants moving into this historic immigrant city (Ostrander, 2014). boards, but in both cases their representation is very low compared to their presence in the city’s population. The scant presence of Latinos on boards and commissions in Chelsea shows that there is definite and mea- Figure 8. Proportion of Latino Population by Census Tract. Somerville, 2010 surable under-representation of Latinos among persons in these bodies.

In Sum…, although Chelsea’s population is overwhelmingly Latino, this is not apparent in the make-up of the city’s government. Although without a doubt many Latinos in Chelsea are newcomers, there is also now a community of Latinos in Chelsea that dates back several generations. The review of Latino representation both in executive positions in the city and on boards and commissions shows that Latino representation in government dwarfs in comparison to the overwhelming presence of Latinos in the city. In both executive positions and boards and commissions related to city government, there is a large and definite under-representation of Latinos in relation to their presence in the population of the city.

In addition, the gap between their presence in the population and their participation in government in Chelsea is the widest of the three cities considered here. Although the Latino representation in executive positions in Chelsea (at 14.3%) is almost twice that of the representation found in Boston (7.5%) among similar positions and their proportional representation on boards and commissions in Chelsea (at 10.9%) is also larger than that found in Boston (6.8%), in both cases the gap between population and representation is greater given the high proportion of Latinos in the population of Chelsea (62.1%) compared to that in Boston (17.5%). This much wider gap signals a much higher level of exclusion of Latinos in city government than was observed in Boston.

Map generated with GIS software on the basis of city boundaries and census tract boundaries for 2010, using data from the U.S. Census Bureau Decennial Census 2010. Bing maps were used as a layer for showing additional geographic context.

22 In this section of the report, population data are drawn primarily from the U.S. Census Bureau’s 2010 Census, with some comparison data from the 2000 Census (http://factfinder2.census.gov). Additional information is from the U.S. Census Bureau’s American Community Survey (ACS), compiled by city agencies (Somerville Housing Authority), or secondary sources.

42 43 Latinos tend to be concentrated in East Somerville, an area adjacent to Interstate Highway 93, a • Housing Vulnerability. Rapid real estate development occurring in areas with concentrations of highway that bifurcates the city, as can be seen in Figure 8. According to Ostrander (2014, p. 25), twice as Latinos is a cause of concern especially when the population has a low homeownership rate. many Latinos lived in East Somerville as in the rest of the city in 2000, attracted by the lower housing costs. Gentrification in these same areas also means that rents can increase rapidly and considerably. However, after decades of virtual abandonment, East Somerville is today the site of major developments Latino homeownership rates are low (21.7%) compared to the city’s overall rate of 33.7%, as reported such as Assembly Square Mall, new MBTA stops, and the fastest rise in the cost of homes in the city in the 2010 Decennial Census. Juxtaposed with this homeownership rate is an indication that (Ostrander, 2014, pp. 26–27). overcrowding may be a bigger problem than for the overall population. For example, according to the ACS 2008–2012 5-Year Estimates, a much larger proportion of Latino households (7.9%) were • Immigrant Adults and Second-Generation Youth. Somerville has a strong history of welcoming reported as having 1.01 or more occupants per room; this compares to a rate of 0.5% for non-Latino immigrants and their descendants. Today, about 15.7% of Somerville’s total population is White households. In Somerville’s public housing for families, 40% of residents are Latino.23 foreign-born. Among Latinos, according to ACS 2008–2012 5-Year data, an estimated 41.4% of all Latinos in Somerville are foreign-born. Latinas compose slightly more than half (58.1%) of the above • Schooling and Education. The educational attainment for Latinos in Somerville is relatively high. category. But in Somerville, the proportion of young Latinos who are native-born is more prominent Among Latinos who are 25 years and over, one third (33.7%) of all males, and 30.8% of all females than in the other two cities: an overwhelming proportion (84.8%) of young (under 18 years of age) hold a bachelor’s degree or higher compared to numbers in the single digits for Latinos of both Latino males in Somerville, and Latinas (87.7%) in the same age category are native-born. This points genders in Chelsea, for example. Nevertheless, one fifth (20.7%) of all Latino males age 25 ad over, to a strong representation of second-generation Latinos and Latinas in this population. Among older and 25.6% of all Latinas 25 and older, have less than a high school diploma. Latino males, 18 years and over, almost half (46.5%) are foreign-born, and more than half (53.4%) of In terms of schooling, the ACS 2008–2012 survey reports that a large proportion of Latinos 3 years of all Latinas in the same age category are foreign-born. age and older who are enrolled in some school are enrolled in college or in graduate or professional school The preponderance of second-generation Latinos in the population is also evidenced in the language (43.6%). (This compares to 66.6% for the population of the entire city.) But a larger proportion of Latinos spoken by the population. According to the 2010 Decennial Census, among Somerville Latinos 5 years and (46.6%) are enrolled in Grades 1–12. Latinos make up a sizeable proportion (41.1%) of the enrollment in the over, 78.8% speak only Spanish at home, but the majority are bilingual: more than two thirds (64.7%) speak district’s public schools (MDESE, 2014c). Their outcomes, as was the case in the other cities, present a mixed English “very well” and another 17.5% speak English “well.” picture. Figure 9 shows the pass rates for Latino students in MCAS ELA and Math in selected grades. As was the case in Boston and Chelsea, MCAS ELA scores in Grade 10 have improved, but Latino scores remain As is the case with Chelsea, but to a slightly lower degree, the ACS 2008–2012 5-Year dataset almost unchanged in Math in both sixth and tenth grades and ELA scores in Grades 3 and 6 have declined estimates that Salvadorans (27.2%) represent the largest group within the Latino category; they are (MDESE, 2014a). Four-year graduation rates, are still very low (66.8% in 2013) and dropout rates are high followed by Puerto Ricans (15.7%), Mexicans (11.1%), Dominicans (10.3%), Guatemalans (9.3%), and (16.3% in 2013) (MDESE, 2014b); nevertheless, Somerville’s are the best graduation and dropout rates of the Colombians (4.0%), while the remainder include Latinos from other parts of Central and South America. three districts considered here. While not the largest group in terms of Latino origins, Latinos with Mexican origins are more prominent in Somerville than in Chelsea or Boston.

• Young and in Large Families. As is the case with the other two cities, based on the 2010 Decennial Census, Latinos represent a relatively youthful population in Somerville: the median age for Latinos is 28.4 years compared to the city’s overall median of 31.7 years. But the generational and age gap between Latinos and the overall population is not as large. Latino families in Somerville are considerably larger than the overall average for the city. The average household size for Latinos is 3.29 persons compared to 2.29 persons for the city. In fact, one quarter (24.7%) of all Latinos in Somerville are 17 years or younger. This compares to 12% of the entire population of Somerville falling in the ages of 17 years or younger. 23 B. Monroe-Howe, Somerville Housing Authority staffer, personal communication, May 12, 2014.

44 45 Figure 9. MCAS Outcomes in English Language Arts (ELA) and Math for Latino Students in • Working and Poor. In spite of the relatively high labor force participation and low unemployment rate, Grades 3, 6, and 10. Somerville Public Schools, 2011–2013 the poverty rate for Latinos in Somerville is 27.6%, compared to non-Latino Whites at 11.5%. Latinos in Somerville register a high rate of self-employment at 9.5%, slightly higher than the 9% for persons 100 2010 who are not Latino.24 90 2011 80 Latino Representation in City Government in Somerville 70 2012 60 50 • Representation of Latinos in Executive Positions in City Government 40 30 Appendix 6 lists the positions in the Executive Office of Somerville’s city government, 16 of its key 20 departments (as listed in the city’s 2014 Municipal Budget), and quasi-independent agencies such as the 10 0 Somerville School Department and the Somerville Housing Authority. It lists also the occupants of key ex- Gr 3 Rea Gr 6 ELA Gr 6 Math Gr 10 ELA Gr 10 Math ecutive positions in each of these departments and agencies in Somerville city government: none of the occupants were Latino. This points to a definite and measurable under-representation of Latinos among Source: MDESE, 2014a persons holding executive positions in the government of the City of Somerville, as can be observed in Table 9. • Work and Occupations. As was the case in the other cities, the labor force participation rate for Latinos is high: at an overall rate of 73.7% for 16 years and over; this compares to 75.4% for the Table 9. Representation in Executive Positions. Somerville. (as of March 1,2014) entire population, according to ACS 2008–2012 5-year Estimates. The city’s unemployment rate for all Number of Latinos Percent of Appointments persons age 16 and over is 7.2%, compared to 7.5% for Latinos. Positions Appointed Who Are Latino Executive Office Positions 10 0 0% Heads of Departments, Independent and Interestingly, the occupational profile of Latinos in Somerville is quite different from those found in 18 0 0% Quasi-Independent Agencies the two other cities. The ACS 2008–2012 5-year dataset estimates that nearly a third (31.4%) of all Latinos are found in the “management, business, science, and arts occupation” sector, followed by 30.4% in the service • Representation of Latinos on Boards and Commissions in City Government sector and 21.4% in “sales and office occupations.” The remainder are in “production, transportation, and material moving” occupations (9%) and “natural resources, construction, and maintenance occupations” (8%). There is documentation for 33 boards and commissions in government of the City of Somerville; The ACS 2008–2012 5-Year Estimates also show that the largest occupational category for Latino males in these appear in Appendix 7. They include boards and commissions operating under the Executive Office,

Somerville is “management, business, science, and arts occupations” (29.1%), followed by “service occupations” the office of the City Clerk, the office of boards and commissions, and nine city departments. Of these, the majority were advisory bodies (15), followed by regulatory (10) and managerial (6) boards and commissions. (22.6%), “sales and office occupations” (19%), “natural resources, construction, and maintenance occupations” In most cases (24), the Mayor had the primary authority to appoint members to these bodies, and the Board (15.4%), and “production, transportation, and material moving” (13.2%). The largest category for Latinas is of Aldermen in almost all instances approved his decisions. But in the remaining bodies, authority was “service occupations” (37.4%), followed by “management, business, science, and arts occupations” (33.5%) and shared with, for example, the Governor (Somerville Redevelopment Authority and the Somerville Housing “sales and office occupations” (22.4%). Less than 6.8% of all Latinas, compared to 28.6% of all Latino males, Authority Board of Commissioners), the Board of Aldermen (several), and the tenants’ association of the work in “natural resources, construction, and maintenance occupations” or “production, transportation, and Somerville Housing Authority. material moving.” There are clearly significant gender differences in the types of occupations held by Latinos in Somerville. But the most significant differences are found in comparison with the largely service and sales Of the 33 boards and commissions, one was found to be inactive (the Human Rights Commission occupations found among Latinos in Boston and Chelsea. 24 These figures, part of the ACS 2012 Public Use MicroData Sample (http://dataferret.census.gov), :include Latino workers in the City of Everett since they share the same Public Use Microdata Area (PUMA) boundary; the PUMA is based on changes in 2010 census boundaries.

46 47 Advisory Board) and another did not have a determined number of seats (the Young Somerville Advisory Economic Development Somerville Redevelopment Authority Regulatory 5 0 Board); both were removed from the listing of boards and commissions that appears in Table 10. Table 10 Housing Affordable Housing Trust Fund Trustee 53 0 describes the type, number of seats, and number of Latino members in each of the 31 boards and Condominium Review Board Regulatory 5 0 commissions that remained. Of these active boards, 11 were regulatory boards and commissions, 7 were Fair Housing Commission Regulatory 5 0 managerial bodies, and 12 were advisory in nature, while 1 served as the trustee for funds. There were 232 Planning & Zoning Design Review Committee Advisory 7 1 potential seats in these boards and commissions; the majority of these (121) were on advisory boards fol- Historic Preservation Commission Regulatory 7 0 lowed by those that were on regulatory entities (64). Planning Board Regulatory 5 0 Zoning Board of Appeals Regulatory 7 0 Bicycle Committee Advisory 134 0 Transportation Conservation Commission Advisory 8 0 Table 10. Membership of Active Boards and Commissions by Department. City of Personnel Municipal Compensation Somerville (as of March 1, 2014) Advisory 0 Advisory Board 5 Total Recreation and Youth Latino Executive Office / Department1 Board / Commission Type1 # of Recreation Department Managerial 10 0 Members2 Seats1 Somerville Housing Authority Executive Office Somerville Housing Authority Board Managerial 5 0 Community Preservation of Commissioners Advisory 0 Committee 9 Somerville Retirement Board5 Commission for Persons Accessibility Advisory 0 with Disabilities 9 Retirement Board Managerial 5 0 Arts Council Arts Council Board Advisory 8 1 Traffic and Parking Council on Aging Council on Aging Board Advisory 11 0 Traffic Commission Regulatory 5 0 SomerPromise SomerPromise Advisory Board Advisory 11 1 Veteran’s Services Veterans Commission on Monuments, Commission on Energy Use and Managerial 0 Sustainability and Environment Advisory 0 Memorials and Dedications 6 Climate Chaange 8 4 City Clerk Total 232

Licensing Commission Regulatory 3 0 Notes: Sections in purple denote independent or quasi-independent agencies. When a position is occupied by a Latino, the correspond- Election ing cell in the “Latino” column is highlighted in magenta. Elections Commission Managerial 0 4 1 The source of the information in these sections is the Somerville website, a phone call to the designated contact person of Ethics Commission Regulatory 5 0 a board/commission or to staff person in the relevant agency, or the Somerville municipal code (accessed through https:// library.municode.com). Finance Department 2 Information on the number of Latinos was obtained in the City of Somerville website and through calls to the appropriate city Assessing Board of Assessors Regulatory 3 0 departments. 3 The Affordable Housing Trust Fund is mandated to have from 5 to 9 members (8 serve at present). We use the lower member- Health Department ship figure in this table. Board of Health Managerial 3 0 4 The Bicycle Committee is mandated to have from more than 13 members (14 serve at present). We use the lower membership figure in this table. Multicultural Affairs Advisory 0 5 Commission 17 Somerville’s Retirement Board administers retirement funds for Somerville employees under rules established by Chapter 32 of the Massachusetts General Laws and in cooperation with the state’s Public Employee Retirement Administration Commis- Office of Somerville Commissions Women’s Commission Advisory 15 1 sion. It is an independent entity, separate from city government. Human Rights Commission Regulatory 12 0 Libraries Library Board of Trustees Managerial 9 0 Office of Strategic Planning and Community Development (OSPCD) Table 11. Representation on Boards and Commissions. Somerville (as of March 1, 2014)

48 49 Number of Latinos Appointees Percent of all Latino Positions Appointed Who Are Latino Appointments IV. From Inclusion To Active Representation All Boards and Commissions 232 4 1.7% 100% In this report, we have presented descriptive data to show that, in Boston, Chelsea, and Somerville, Advisory Boards and 100% 121 4 3.3% Commissions Latinos are distinctly underrepresented in positions with policy, management, fiscal oversight, and regulatory Managerial Boards and 0% 0% authority, as well as on the advisory bodies that guide policymakers. Inclusion is a crucial step toward 42 0 Commissions the active representation that Latinos need from municipal government. But inclusion alone will not Regulatory Boards and 0% 0% 64 0 Commissions necessarily lead to the active representation of Latinos, nor to the broadly shared benefits of Trustee Boards 5 0 0% 0% inclusive government. Individual, organizational, and contextual circumstances shape whether city employees will take action to benefit constituents and clients. Understanding these factors is important for achieving substantive changes, so that municipalities can take steps to encourage bureaucrats to play

The summary of the representation of Latinos on boards and commissions in Somerville’s city an advocacy role as active representatives of the citizenry. government appears in Table 11. Latinos were appointed to 4 of the 31 boards and occupied 4 of the 232 Mid- and high-level actors have strengths and limitations as change agents, and benefit from seats available, for a representation of 1.7%. This minimal representation compares to a representation particular supports. Inclusion among the top ranks of decision-makers is important because of the authority of 10.6% in the total population. The scant representation shows that there is definite and measurable and influence of such positions (Smith & Monaghan, 2013). Research has also found that an increase in the under-representation of Latinos among persons in these bodies. presence of senior-level administrators from underrepresented populations can lead to an increase in mid- or street-level staff from those groups (Meier et al. 2004; Mitchell, 2011). Thus we would expect that increasing In Sum… Latinos represent 10.6% of the population of Somerville, the lowest proportion of any of the inclusion of Latinos in executive and other decision-making positions would lead to improved inclusion of the cities considered here. This is an older settlement of persons that continues to grow and has distinct Latinos throughout an agency’s workforce. educational and economic resources when compared to Latinos in either Boston or Chelsea. Nevertheless, there is no presence of Latinos at all in the executive positions of city government in the Somerville and they However, people in senior roles face particular challenges. They may have adopted the values of have a negligible presence on the boards and commissions advising, managing, or regulating the work of city the organization and be less likely to play the controversial role of change agent (Sowa & Seldon, 2003). departments. Their absence from the Human Rights Commission, the Multicultural Affairs Council, and the When they are appointed, their loyalty to an appointer may be great and can override any impulse to pursue Young Somerville Advisory Group is especially salient as is their absence from any advisory or regulatory body changes (Riccucci & Saidel, 1997). Most crucially, managers tend to have less discretion over service delivery in overseeing the development of East Somerville, where Latinos are most concentrated. comparison to rank-and-file employees, whose face-to-face contact with clients and ability to change program practices create immediate impact, provided they have sufficient discretion to make those changes (Meier, 1993; Meier & Bohte, 2001; Smith & Monaghan, 2013; Wilkins & Williams, 2008).

Many of these challenges can be addressed through internal and external political supports.

Internally, political supports may come from close working relationships with co-ethnics, including the

formation of employee associations that can provide protection against others within the bureaucracy who may resist change and raise awareness of inequities among staff (Thompson, 1976). Externally, political

supports come from mobilized constituents. There is some evidence that client demand and bureaucrat discretion co-operate, such that a bureaucrat’s ability to act on behalf of constituents grows with the extent of the pressure for action those constituents create. Formal expectations also matter (Marvel & Resh, 2013). Individuals are more likely to assume an advocacy role if the organization has a focus on equity (Meier, Wrinkle, & Polinard, 1999), or if it is a formal part of their duties to devise and implement changes to better serve Latino communities (Sowa & Selden, 2003).

50 51

Are Latinos a nontrivial portion of the bureaucracy? Small numbers of Latinos working in isolation may not be able to achieve the desired changes. Resistance Critical mass and to their presence, or efforts by Latino bureaucrats to avoid being perceived as uneven progress exhibiting favoritism toward Latinos, may mean that service outcomes for Latino At all levels of the municipal workforce, a “critical mass” of persons from previously constituents are actually worsened initially. Improvements in outcomes may not occur until a critical mass of Latino bureaucrats is reached. under-represented groups may be necessary before improved outcomes for their communities will Setting be achieved. A small number of appointees or hires will find it difficult to create broad changes, and may expectations When demands are made of a Latino bureaucrat, are they consistent with the opportunities and constraints of that person’s position within the broader experience pressure not to appear to demonstrate favoritism. Several studies have found that outcomes for a organization? Bureaucrats in senior roles may be well-positioned to increase Organizational the representation of Latinos at mid- and front-line levels in the bureaucracy. newly better-represented group worsened at first, and only improved after the group became a “nontrivial” position Frontline bureaucrats, when they are in organizations that allow employee proportion of the workforce (Meier, 1993; Meier, Wrinkle, & Polinard, 1999; Marvel & Resh, 2013). discretion, may be the most impactful at improving services and changing day-today organizational practices in ways that benefit Latino clients and communities.

Toward Active Representation — FACTORS THAT MATTER Other factors will also influence whether municipal actors are able to advance changes for Does a Latino bureaucrat have sufficient discretion to make changes that will benefit Latino communities? For senior-level bureaucrats, can they use their position to change communities (Jennings, 1985). In general, bureaucrats from under-represented groups are more likely to Discretion policy and funding allocations? For frontline staff, do they have sufficient latitude to change practices and influence policies?If bureaucrats are to play an advocacy role, advocate on issues that are already perceived to have relevance to their co-ethnics (Meier, 1993)—hence the they require sufficient discretion to act. attention in this report to demonstrating the particular interest Latinos have in the public schools, affordable

Is a Latino bureaucrat being challenged and held to account by an organized and housing, and adequate jobs and wages. Some issues and strategies may more readily lend themselves to vocal constituency of Latinos and allied communities? A mobilized constituency can alliance building than others. In general, when there is competition for a scarce resource (e.g., leadership A mobilized push bureaucrats to embrace an advocacy role. Bureaucrats tend to play a more Enhancing a constituency substantial advocacy role when they are responding to the demands of constituents positions) there may be conflict and opposition, but when everyone can benefit (e.g., better student bureaucrat’s and clients. This external pressure may also increase a bureaucrat’s discretion to opportunities performance outcomes) there may be opportunities for collaboration (Meier et al., 2004). take action. to actively represent Lat Are there networks and associations of Latino bureaucrats, and/or bureaucrats of Finally, when bureaucrats assume an active role in representing a racial or ethnic constituency, Internal political color? Such internal political supports can provide a counterbalance to factors that they do so by pursuing a range of strategies. They may check and restrain discriminatory behavior of supports inhibit individuals from serving as change agents, like organizational socialization and loyalty to appointers. colleagues, socialize colleagues and agency norms, advocate for policy changes or lead in changing practice, and influence clients directly or indirectly by being present in the organization as a role model (Lim, 2006). In Is it a formal part of a Latino bureaucrat’s job to improve services to and/or increase Formal the involvement of Latinos or other underrepresented groups? Does the organization a multi-city qualitative study of how Latinas in municipal government sought to serve Latino communities, organizational have an explicit focus on equity? Bureaucrats are more likely to adopt an advocacy supports interviewees described serving as liaisons to build links between municipal agencies and Latino community role when it is consistent with the formal expectations of their position. leaders, working with mayors to secure appointments of Latinos to boards and commissions, and advocating Is the policy issue one that is understood to have particular relevance to Latinos? Latino with department leaders for better services in Latino neighborhoods (Brenner, 2009). Policy relevance bureaucrats may be most successful at playing an advocacy role in policy areas that Choosing are seen as important to the community. campaign In summary, better outcomes might be expected by broadly increasing representation of Latinos targets to Does the circumstance targeted for change involve a scarce resource? For example, in decision-making positions, and by doing so in policy areas that are seen as particularly relevant to Latino enhance leadership positions are scarce—if one person fills a position another cannot. Better representation Scarcity student performance at public schools is not scarce—different groups of students can communities. Individuals in those positions would be expected to be most effective when they have the have better outcomes simultaneously. Advocates may wish to strategize about how and outcomes and conflict / support of association with one another as well as political support and pressure from outside. Their for Latinos cooperation to anticipate and address potential conflicts with other groups, and seek opportunities to build alliances with other groups that also stand to benefit from the presence can be leveraged to improve representation at other levels of the municipal bureaucracy. Strategies desired changes. may be needed to confront or avoid conflict with other communities over scarce leadership positions, and to target goals likely to have broad benefits.

52 53 V. Conclusions And Recommendations

Several important conclusions emerge from this study. Foremost is that the Latino population continues to grow significantly throughout cities in Massachusetts. Growth patterns indicate a young population that will increase its demographic presence in some neighborhoods, public schools, and the workforce. But the analysis of their participation in city government makes clear that Latino representation in local government is not consistent with the demographic changes taking place in Boston, Chelsea, and Somerville.

The demographic analysis showed that there was much consistency regarding the characteristics of the Latino population and their economic and social vulnerability across the three cities. Latinos shared major gaps in the areas of housing, poverty, and employment compared to other groups. The analysis also showed that Latinos rely heavily on public systems—public schools and public housing were salient examples—and therefore have a great stake in the effective functioning of these systems.

In all three cities, the representation of Latinos in the population far outdistances their presence in city government. In all three, but especially in Chelsea, the gaps are wide in their participation in leadership positions in city government departments (and as members in the boards and commissions that guide, monitor, and advise the work of these departments) in comparison to their numbers in the citizenry. For representation to be more consistent with the presence of Latinos in the cities: Boston would need to double the participation of Latinos in executive positions and on Boards and Commissions; Chelsea would need to quadruple the representation of Latinos in executive positions and increase five-fold their representation in boards and commissions advising city departments and Somerville would need to bring in its first Latinos into city government positions and increase six-fold their representation on boards and commissions. None of this can be accomplished overnight. Therefore, a consistent effort by the municipalities and the communities is necessary to set goals and monitor the inclusion of Latinos across city government in these three cities.

Finally, this study—based on the data and extant literature—suggests that closer alignment between the actual numbers and proportions of Latinos in the population and public appointments of Latinos is a key component of more effective government and governance. While the issue of Latino representation in government is a specific and key one, it should not be disconnected from the fact that responding to this challenge can make government more effective for everyone.

With this in mind, the conclusions and recommendations are not meant as “finger-pointing” but rather as a framework for addressing the representational challenges described in the study. Each of the three cities has an opportunity to play an active role in creating a more inclusive city government and with it a better city. Municipal actors will do much of the work ahead, but their success will also depend on engaged and mobilized constituencies.

54 55 Specific Recommendations for Municipalities 3. Leverage efforts at the leadership level to pursue a more inclusive bureaucracy at all staffing levels. • For leaders with a role in hiring, support them in pursuing a more inclusive staff throughout an agency’s workforce. 1. Pursue the inclusion of Latinos at the leadership level.

• Adopt a vision statement endorsing the importance of greater governmental representativeness of a changing demography. Specific Recommendations for Communities and Constituencies • Adopt a formal city-wide outreach strategy for the recruitment of Latinos with requisite skills and experience and who also have an understanding of community-based issues. 1. Be organized and vocal.  for executive positions in the city’s government • Make specific demands to which leaders must respond.  for positions in departments that are of particular salience to the needs of the Latino pop- • ulation (for example, education, youth, jobs and economic development and housing). Anticipate the “nonlinear” nature of change, including potential declines in service outcomes as small numbers of Latinos assume bureaucratic roles, and continue to press for inclusive  for appointment in board and commissions, government, working toward the “critical mass” with the capacity to effect change.

• Develop a process of oversight and accountability that will monitor the city-wide outreach and appointment strategy in collaboration with organizations and leaders in the Latino community. 2. Build alliances with other groups that also are under-represented in municipal leadership, and • Create an explicit goal to develop a “critical mass” of Latino leaders, whose influence can be felt also stand to benefit from increased inclusion and active representation (important in any event, but most in improved outcomes for Latino residents. relevant in Boston and Somerville of the three cities).

• Strategize to avoid competition for limited leadership positions.

• Work collaboratively for a broadly inclusive workforce and for service improvements to communities, recognizing that all residents will likely benefit. 2. Support city workers in adopting an advocacy role and actively representing Latinos.

• Encourage the formation of internal political supports, like independent networks and

associations of Latino employees or employees of color. 3. Collaborate with the cities in developing goals, strategies and oversight for their efforts to diversify their workforces and, specifically, the representation of Latinos in the city workforce and on • Establish objectives that make the work of increasing the involvement of Latinos and improving boards and commissions advising the work of the cities’ departments. services to Latino communities an explicit part of agency and individual expectations. These may include adoption of a broad organizational focus on equity and inclusion of relevant duties in • Continue to review the taxonomy of boards and commissions in order to determine their salience job descriptions. in terms of Latino living conditions and monitor the openings in these boards.

• Target initial efforts in substantive areas in which Latino communities have a particular stake, • Develop a listing of persons knowledgeable about the community’s issues who are willing to including housing, education, and economic development. volunteer for boards and commissions and/or be employed to provide service in city government.

56 57 Works Cited

American Legal Publishing Corporation. (2014). City of Boston Municipal Code, Chapter V: Administration. MDESE [Massachusetts Department of Elementary and Secondary Education]. (2014b). 2013 Graduation Rate Report (DISTRICT) for Available at: http://amlegal.com/nxt/gateway.dll/Massachusetts/boston/cityofbostonmunicipalcode?f=templates$fn=de- All Students 4-Year Graduation Rate. Available at: http://profiles.doe.mass.edu/state_report/gradrates.aspx fault.htm$3.0$vid=amlegal:boston_ma MDESE [Massachusetts Department of Elementary and Secondary Education]. (2014c). Public School District Profiles: Chelsea. Anderson, T., & Cramer, M. (2014, January 9). Black officer set to make history, The Boston Globe, p. B1. Available at: (http://profiles.doe.mass.edu/profiles/student.aspx?orgcode=00570000&orgtypecode=5&) Boston Housing Authority. (2013). Demographics by Development (Internal Report). Boston Housing Authority. Boston. Meier, K. J. (1993). Latinos and Representative Bureaucracy: Testing the Thompson and Henderson Hypotheses. Journal of Public Boston Public Schools. (2013a). 4-year Graduation Rate by Cohort Group. Boston: Office of Data and Accountability, Boston Public Administration Research and Theory, 3(4), 393–414. Schools. Meier, K. J., & Bohte, J. (2001). Structure and Discretion: Missing Links in Representative Bureaucracy. Journal of Public Administration Boston Public Schools. (2013b). Boston Public Schools at a Glance 2012–2013. BPS Facts. Boston: Communication Office, Boston Research and Theory, 11(4), 455–470. Public Schools. Meier, K. J., McClain, P. D., Polinard, J. L., & Wrinkle, R. D. (2004). Divided or Together? Conflict and Cooperation between African Boston Public Schools. (2013c). Massachusetts Comprehensive Assessment System, Results of Spring 2012, ELA (Gr. 3–8 & 10), Americans and Latinos. Political Research Quarterly, 57(3), 399–409. Mathematics (Gr. 3–8 & 10), Science (Gr. 5, 8, and high school). Boston: Office of Data and Accountability, Boston Public Meier, K. J., Wrinkle, R. D., & Polinard, J. L. (1999). Representative Bureaucracy and Distributional Equity: Addressing the Hard Schools. Question. The Journal of Politics, 61(4), 1025–1039. Boston Public Schools. (2013d). Q and A, Boston Public Schools 2012–2013: Student Dropout Rates. Boston: Office of Data and Mitchell, R., Jr. (2011). Representative Bureaucracy: A Study of Associations between African Americans at the Senior Level and the Mid Level Accountability, Boston Public Schools. of the Federal Civil Service. Public Policy and Administration, Virginia Commonwealth University, Richmond, Virginia. Brenner, C. T. (2009). Latina Administrators in Local Government The Interplay of Role Orientation and Policy Intentions. Administra- Municode. Chelsea, Massachusetts, Code of Ordinances. Administrative Code. Multiple Member Appointive Organization. Available tion & Society, 40(8), 825–851. doi: 10.1177/0095399708326346 at: https://library.municode.com/index.aspx?clientId=14939 Chelsea Housing Authority. (2014). Tenant Statistical Reporting, Summary Statistics I, FY 2014 (Internal Agency Report). Municode. Somerville, Massachusetts, Code of Ordinances. Administrative Code. Boards, Commissions and Agencies. Available at: City of Chelsea. (2012). Code of Ordinances. (Last recodified February 27, 2012). Available at: https://library.municode.com/index. https://library.municode.com/index.aspx?clientId=11580 aspx?clientId=14939. Ostrander, S. A. (2014). Citizenship and Governance in A Changing City: Somerville, MA. Philadelphia: Temple University Press. Collins, R. R. (n.d.). The Boards and Commission Appointments Process in the District of Columbia. Office of Boards and Commissions, Riccucci, N. M., & Saidel, J. R. (1997). The Representativeness of State-Level Bureaucratic Leaders: A Missing Piece of the Representa- Mayors Office, District of Columbia. Washington, D.C. Retrieved from http://newsroom.dc.gov/file.aspx/release/7615/ tive Bureaucracy Puzzle. Public Administration Review, 57(5), 423–430. Boards_and_Commissions_Appointments_Process_Overview.pdf Ryan, A. (2014, February 10). Walsh names Barros to economic development post, The Boston Globe. Hardy-Fanta, C. (2002). Who’s in Charge? Appointments of Latinos to Policymaking Offices and Boards in Massachusetts Latinos in Smith, A. E., & Monaghan, K. R. (2013). Some Ceilings Have More Cracks: Representative Bureaucracy in Federal Regulatory Agencies. Massachusetts: Political Representation. Boston: Mauricio Gastón Institute for Latino Community Development and Public American Review of Public Administration, 43(1), 50–71. Policy, University of Massachusetts Boston. Sowa, J. E., & Selden, S. C. (2003). Administrative Discretion and Active Representation: An Expansion of the Theory of Representative Hardy-Fanta, C., & Stewartson, D. (2007). A Seat at the Table? Racial. Ethnic and Gender Diversity on Corporate, Hospital, Education, Bureaucracy. Public Administration Review, 63(6), 700–710. Cultural and State Boards. Boston: Center for Women in Politics & Public Policy, McCormack Graduate School, University of Theobald, N. (2004). ¡Muéstreme el Dinero!: Assessing the Linkage Between Latino School Superintendents and English Language Massachusetts Boston. Learner Program Resources. Paper presented at the Latino Politics: State of the Discipline, Texas A&M University, College Jennings, J. (1985). Measuring the Quality of Municipal Services in Black Urban Communities: Unresolved Research Issues. Urban Station, Texas. Resources, 2(3), B1–B4 Thompson, F. J. (1976). Minority Groups in Public Bureaucracies: Are Passive and Active Representation Linked? Administration & Lane, T. S., & Currivan, D. (2001). Social Capital in Boston: Findings from the Social Capital Community Benchmark Survey. Boston: The Society, 8, 201–226. Boston Foundation. Available at: https://folio.iupui.edu/bitstream/handle/10244/747/Social%20Capital%20in%20Bos- U.S. Department of Justice (2010) Settlement Agreement between United States of America and the Boston Public Schools (2010). ton%20summary.pdf?sequence=2. Lim, H.-H. (2006). Representative Bureaucracy: Rethinking Substantive Effects and Active Representation. Public Administration Re- Available at: http://www.justice.gov/crt/about/edu/documents/bostonsettle.pdf view, 66(2), 193–204. Uriarte, M., Karp, F., Gagnon, L., Tung, R., Rustan, S., Chen, J., Berardino, M., Stazesky, P., de los Reyes, E., & Bolomey, A. (2011). Lima, A., Melnik, M., & Borella, N. (n.d.). Boston in Context: Neighborhoods (2007–2011 American Community Survey, 2010 Census). Improving Educational Outcomes of English Language Learners in Schools and Programs in Boston Public Schools. Gastón Boston: Boston Redevelopment Authority. Institute Publications. University of Massachusetts Boston: Gastón Institute. Lowery, W. (2014, January 4). Arroyo is tapped to be health chief. Boston Globe, p. B1. Uriarte, M., Osterman, P., & Melendez, E. (Eds.). (1993). Latinos in Boston: Confronting Poverty, Building Community. Boston: The Boston Pitts, D., & Jarry, E. (2007). Ethnic Diversity and Organizational Performance: Assessing Diversity Effects at the Managerial and Street Foundation. Levels. International Public Management Journal, 10(2), 233–254. Watkins-Hayes, C. (2011). Race, Respect, and Red-Tape: Inside the Black Box of Racially Representative Bureaucracies. Journal of Marvel, J. D., & Resh, W. G. (2013). Bureaucratic Discretion, Client Demographics, and Representative Bureaucracy. American Review of Public Administration Research and Theory, 21, 233–251. doi: 10.1093/jopart/muq096 Public Administration, 43. doi: 10.1177/0275074013492008 Wilkins, V. M., & Williams, B. N. (2008). Representing Blue: Representative Bureaucracy and Racial Profiling in the Latino Community.

MDESE [Massachusetts Department of Elementary and Secondary Education]. (2014a). 2013 MCAS Results by Subgroup by Grade Administration & Society, 40(8), 775–798. and Subject. Available at: (http://profiles.doe.mass.edu/mcas/subgroups2.aspx?linkid=25&orgcode=00570000&fy- code=2013&orgtypecode=5.

58 59 Appendix 1: Research Approach and Data Used

Noting that in all three cities there were boards and commissions that appeared to not be active, we In describing the level of representation in executive positions and boards and commissions in the narrowed the scope of the analysis, first, by excluding those boards and commissions that were considered local governments of Boston, Chelsea and Somerville, this report addresses the following questions: “inactive,” that is, entities listed in the city’s website listing of boards and commissions for which we found no What is the level of representation of Latinos in executive positions in the government of the cities of Boston, evidence of their being currently active, or where the terms of the last appointee expired before January 1, Chelsea, and Somerville and does it reflect the proportion of Latinos in the overall population of these cities? 2013.4 We also excluded those boards whose membership restrictions were such that they left no discretion to the appointing authority.5 We included boards that call for the participation of the public: What is the level of representation of Latinos on boards and commissions in the government of these three cities and does it reflect the proportion of Latinos in the total population of these cities? • when there was a reference to the appointment of one “resident of the city” without The report approached these questions using publicly available data and phone interviews conducted with additional requirements government officials in the three cities in the following manner: • when, although the appointment may have been restricted to a member of a particular group (for example, labor, a profession, or an institution), the appointing authority had broad discretion (1) conducting extensive literature reviews on the concept of representative bureaucracy and its meaning as to who the actual representative of that sector would be. in addressing the concerns of under-represented groups.

• when there was no available information about the restrictions on membership. (2) preparing demographic profiles of the Latino population of the three cities using data from the U.S. Census Bureau, specifically, the 2000 and 2010 Decennial Censuses; the American Community Survey 5 (5) obtaining the current membership of boards and commissions and names of city executives through Year Estimates for 2007–2011 and 2008–2012, and the American Community Survey 2007–2011 Public Use public information available from each city, media reports, and interviews with staff in each of the cities. Microdata Samples (PUMS).1 (6) identifying Latino persons in executive positions and as members of boards and commissions by

(3) developing a listing of the cities’ departments, as they appeared in each of the cities’ websites, and identifying members with common Latino surnames (Rodriguez, Rivera, etc.), then identifying “potential” 6 determining the occupant of leadership positions within these departments from information on the Latino surnames and checking these against the U.S. Census list of Spanish Surnames. This method tends to websites and phone calls to departments in each of the cities. under-represent Latinos/as whose surnames are not in Spanish (Borenstein, Shapiro, Pons, Risech) or who have changed their surnames to a non-Hispanic surname due to marriage.

(4) developing a listing of the boards, commissions, and authorities, as they appeared in each City’s website or in listings of ordinances for each of the cities, and classifying these by types based on their mission. (7) computing the percentage of individuals on each board and commission who had Latino surnames For Chelsea and Somerville, Municode, a website listing ordinances of commissions and commissions, was and comparing this proportion to the proportion of Latinos in the cities’ populations. In addition, we used to determine the mission, membership requirements, and appointing authority of each board and com- computed the percentage of bodies with any and with no Latino representation. mission.2 In the case of Boston, the source was the American Legal Publishing Corporation’s listing of the City of Boston Municipal Code.3 Because the boards and commissions in some cases date back a century, when (8) conducting interviews with municipal officialsto clarify information and identify inclusionary initiatives in doubt, information on current mission, membership requirements, and appointing authority was obtained being implemented in city governments. directly from City of Boston staff. 4 These “inactive” boards and commissions included in Boston: the Living Wage Advisory Committee (under the Department of Jobs and Community Service), the Boston Waterways Board (under the Environment Department), the Board of Examiners (under Inspectional 1 Data collected and reported under the 2010 Decennial Census represent a direct counting of people and households. Data collected Service), the Human Rights Commission (under Health and Human Services, the Rent Equity Board (under Housing and Neighborhood under the American Community Survey are estimates of population characteristics and are useful in order to capture “snapshots” of Development), and the Fire Department’s Arson Prevention Commission; in Chelsea: the Affordable Housing Fund, the Youth Commis- the social, demographic, education, and housing characteristics of Latinos. (Since the ACS are estimates, margins of errors are reported sion, the Human Rights Commission, and the Cable Television Advisory Committee; and in Somerville, the Human Rights Commission for values; these are available on the American Fact Finder website.) Information about other groups may be included for the purpose Advisory Council. of comparison. 5 These included in Boston: George Robert White Fund Board of Trustees, the Public Improvement Commission, and the Trustees of the 2 For Chelsea, the url of Municode is https://library.municode.com/index.aspx?clientId=14939; for Somerville it is https://library.muni- Ground Water Trust. code.com/index.aspx?clientId=11580 6 The Census list of Spanish Surnames may be accessed at: http://fcds.med.miami.edu/downloads/dam2011/25%20Appendix%20 3 Available at: http://amlegal.com/nxt/gateway.dll/Massachusetts/boston/cityofbostonmunicipalcode?f=templates$fn=default. E%20Census%20List%20of%20Spanish%20Surnames.pdf htm$3.0$vid=amlegal:boston_ma

60 61 Appendix 2: Executive Positions. Department Director Latino/a Consumer Affairs and Licensing Patricia Malone -

City of Boston (as of March 1, 2014) Jobs and Community Services Trihn Nguyen -

Tourism and Special Events Tony Nunziante -

1. Mayor’s Staff Small and Local Business Enterprise / Boston Residents Jobs Keith Williams - Policy Formal Level Position Occupant Latino Boston Redevelopment Authority Brian Golden - Chief of Staff Daniel Koh - Cabinet-level Education (John McDonough) Chief of Operations and Administration Joseph Rull - Chief of Policy Joyce Linehan - School Department John McDonough - Ex Officio Corporation Counsel Eugene O’Flaherty - Environment, Energy and Open Space (Brian Swett)

Chief Communications Officer Lisa Pollack - Environment Nancy Girard -

Note: Inspectional Services Bryan Glascock - When a position is occupied by a Latino, the corresponding cell in the “Latino” column is highlighted in magenta. Parks and Recreation Christopher Cook -

2. Cabinet Finance and Budget (David Sweeney) Assessing Ronald Rakow - Chief Occupant Latino Auditing Sally Glora - Arts and Culture Vacant Budget Karen Connor - Economic Development John Barros - Education John McDonough - Purchasing Kevin P Coyne -

Environment, Energy and Open Space Brian Swett - Registry Patricia McMahon - Finance and Budget David Sweeney - Treasury Vivian Leo - Health and Human Services Felix G. Arroyo Health and Human Services (Felix G. Arroyo) Housing and Neighborhood Development Sheila Dillon - Information Justin Holmes - Animal Care and Control Mark Giannangelo -

Public Safety (Joint Chiefs) - Boston Centers for Youth and Families Christopher Byner - Emergency Services Rene Fielding - Civil Rights Dion Irish - Fire John Hasson - Disabilities Commission Kristen McCosh - Police William Evans - Streets, Transportation and Sanitation Vacant - Commission on Affairs of the Elderly Emily Shea -

Food Initiatives Edith Murmane - Note: When a position is occupied by a Latino, the corresponding cell in the “Latino” column is highlighted in magenta. Office for New Bostonians Alexandra St. Guillén

Veterans Services Francisco Urena 3. Departments Youth Fund/Youth Council Shari Davis - Department Director Latino/a Women’s Commission Megan Costello - Arts and Culture (Vacant) Public Health Commission Barbara Ferrer Public Library Amy Ryan - Housing and Neighborhood Development (Sheila Dillon) City Clerk (Maureen Feeney) -

Archives and Records John McColgan -

Registry Patricia McMahon -

Economic Development (John Barros)

62 63 Department Director Latino/a Appendix 3: Boards and Commissions, Type, Appointing Policy Development and Research Bob Gehret - Boston Home Center Vacant - Authority, and Requirements for Membership. Neighborhood Housing Development Theresa Gallagher -

Office of Business Development Rafael Carbonell City of Boston (as of March 1, 2014) (Except when noted, the sources of the information in this table are the website of the respective city agency, The city’s Boards and Real Estate Management and Sales Donald Wright - Commissions site or the American Legal Publishing Corporation’s listing of the City of Boston Municipal Code) Boston Housing Authority Bill McGonagle - Depart- Board or Appointing Information (Justin Holmes) Cabinet Type Requirements of membership ment Commission Authority Cable Communications Michael Lynch - Arts and Culture Innovation and Technology Justin Holmes - Boston Arts Managerial Mayor 5 from nominees from Boston cultural institutions Commission Joint Chiefs of Public Safety- Boston Cultural Managerial Mayor 9 Boston residents Council Emergency Services Rene Fielding - Public 9 members. Unable to determine if there were restric- Board of Trustees Managerial Mayor Fire John Hasson - Library tions on membership

Police William Evans - City Clerk

Law (Eugene O’Flaherty) 9 members. Of these 6 should be senior city officials Archives and (city clerk, the city registrar, the corporation counsel, Records the director of the public library, the director of the Elections Geraldine Cuddyer - Advisory Mayor Advisory office of arts and humanities, and the director of ad- Operations and Administration (Joseph Rull) Commission ministrative services, or designees). Three persons to be appointed by the Mayor. (1) Boston Retirement Board Timothy Smyth - Economic Development Health Insurance Kathleen Green - Small and 7 persons representative of business, minorities, Boston Local women, organized labor, building trades council, with Employment Managerial Mayor Human Resources Vivian Leonard - Business demonstrated commitment to equal employment op- Commission Enterprise portunity. (2). Intergovernmental Relations James Sullivan - Tourism Fund for Boston Non-profit 7 members. Unable to determine if there were restric- and Special Neighborhoods, board of Mayor Labor Relations Paul Curran - tions on membership. Events Inc Trustees (3) Neighborhood Services Jay Walsh - A member of the City Council appointed by the Mayor; Neighborhood Jobs Trust Mayor the Director of the Office of Jobs and Community Ser- Property and Construction Management Michael Galvin - Trust Jobs and vices; and the Collector- Treasurer. Streets, Transportation and Sanitation (Vacant) Community 1 person recommended by the Massachusetts AFL-CIO, Living Wage Services 1 by ACORN, 1 member of a Boston CBO, 1 member of Advisory Advisory Mayor Public Works Michael Dennehy - Greater Boston Chamber of Commerce; 1 member of Committee (4) the Boston Chamber of Neighborhood Commerce. Transportation James Gilooly - Mayor 1 member appointed by the Governor and 4 by the Board of Directors Regulatory Parking Gina Fiandaca - Mayor. Governor Boston Bikes Nicole Freedman - Boston Zoning 11 members. Unable to determine if there were restric- Regulatory Mayor Boston Commission tions on membership. Boston Water and Sewage Commission Henry Vitale - Redevelop- Boston Civic 11 members, Boston residents and design profes- ment Design Advisory Mayor sionals. Notes: Authority Commission Sections in purple denote independent or quasi-independent agencies. When a position is occupied by a Latino, the corresponding Boston Industrial Development 5 members, Boston residents with professional exper- cell in the “Latino” column is highlighted in magenta. Managerial Mayor Finance tise in real estate development and finance. Authority Education School Boston School Managerial Mayor 7 Boston residents. Department Committee Environment, Energy and Open Space

64 65 Air Pollution 5 members including health and transportation offi- Finance and Budget Control Regulatory Mayor cials and three members without restrictions. 3 members. Currently all are employees of the Assess- Commission Board of Review Regulatory Mayor ing Department. Of the 9 commissioners: 2 selected at large by the May- Assessing or; 2 nominated by Boston Society of Architects; 1 ar- Audit Committee Managerial Mayor 5 residents of the city. chitectural historian nominated by the Society for the Established by 3 members to include representatives of the Boston Preservation of NE Antiquities; 1 city planner nominat- Edward Ingersoll Boston Landmarks trust Society of Landscape Architects and the Art Commis- Regulatory Mayor ed by the American Institute of Planners; 1 landscape Browne Trust Advisory Commission sion and the Commissioners of Public Works and Parks architect nominated by the Boston Society of Land- Fund Committee and Recreation. scape Architects; 1 nominated by Greater Boston Real Estate Board; 1 from the Greater Boston Chamber of 5 members including the Mayor, the President of George Robert Commerce. Established by the City Council, the City Auditor, the President of White Fund Board Trustee donor the Chamber of Commerce, and the President of the Aberdeen Arch 5 Members usually nominated by neighborhood asso- of Trustees Regulatory Mayor Boston Bar Association. Cons District ciations, the Landmarks Commission and others. 5 trustees appointed by Mayor without restriction; 9 members from nominations by the Back Bay Associ- Neighborhood Trustee Mayor others are the Treasurer and the President of the City Back Bay Arch ation, the Neighborhood Association of the Back Bay, Housing Trust Regulatory Mayor Council. District the Boston Society of Architects, the Greater Boston Treasury Real Estate Board. City of Boston 7 members, all members of the Boston School Com- Trustee Mayor Bay State Rd / School Trust Fund mittee. 5 Members usually nominated by neighborhood asso- Back Bay West Regulatory Mayor ciations, the Landmarks Commission, and others. City of Boston Cons District Scholarship Fund 9 members. Unable to determine if there were restric- Trustee Mayor Bay Village Histori- 5 Members usually, by neighborhood associations, the Scholarship Com- tions on membership. Regulatory Mayor cal District Landmarks Commission, and others. mittee Trustees of Char- Beacon Hill 5 Members usually nominated by neighborhood asso- itable Non-Profit Architectural Regulatory Mayor 12 members. Unable to determine if there were restric- ciations, the Landmarks Commission, and others. Donations to Board of Mayor Environment Commission tions on membership. Inhabitants of Trustees (9) Fort Point Channel 5 Members usually nominated by neighborhood asso- Boston Regulatory Mayor Landmark District ciations, the Landmarks Commission, and others. Health and Human Services Mission Hill Tri- 5 Members usually nominated by neighborhood asso- angle Arch Cons Regulatory Mayor 7 members. Mayor appoints six members with approv- ciations, the Landmarks Commission, and others. al of City Council; 7th member is the chief executive District Boston officer of the Boston Medical Center. Of the 6 mayoral Public Health Board of Health Managerial Mayor South End Land- 4 Members usually nominated by neighborhood asso- appointees, 2 should be officers or medical directors of Regulatory Mayor Commission mark District ciations, the Landmarks Commission, and others. neighborhood health centers affiliated with BMC and 1 St Botolph Arch 5 Members usually nominated by neighborhood asso- should be a representative of organized labor. Regulatory Mayor Cons District ciations, the Landmarks Commission, and others. 5 residents of Boston. One should be a tenant of assisted housing in Boston, 1 a real estate agent working in 7 members including the Commissioner of Parks and Boston Fair residential real estate, 1 an administrator of a commu- Recreation, and 6 Boston residents including 2 appoint- Housing Managerial Mayor ed from candidates nominated, 1 each by: the Massa- nity-based non-profit organization focused on housing, Civil Rights Commission chusetts Audubon Society, Inc., the Massachusetts For- and 1 should be a person with governmental experi- est and Park Association, the Massachusetts Roadside ence in civil rights. Boston Council, the Trustees of Reservations, the Eastern Mas- Human Rights Advisory Mayor 7 residents of Boston. Conservation Regulatory Mayor sachusetts Group of the New England Chapter of the Commission (10) Commission Sierra Club, Boston Green Space Alliance, the Boston Commission Harbor Associates, Boston Urban Gardeners, Friends of Boston Disability 9 members. The majority are persons with disabilities; for Persons the Boston Harbor Islands, Save the Harbor/Save the Advisory Advisory Mayor 1 can be an immediate family member of a person with with Bay, the Boston Natural Areas Fund, the Charles River Commission a disability and 1 can be a city official. Disabilities Watershed Association, and the Neponset River Water- shed Association. Youth Fund/ Youth Youth Council Advisory Mayor 85 representatives chosen from applicants. 9 members; Must include Harbormaster and Boston Waterways Council Advisory Mayor representatives from a variety of classes of users of Board (5) city waterways. Housing Zoning Board of 7 members. Unable to determine if there were restric- Public Facilities 3 members. Unable to determine if there were restric- Regulatory Mayor NA (7) Mayor Inspectional Appeal tions on membership. Commission (11) tions on membership. Services Neighborhood 5 members; 2 tenants of rental housing units, who own Board of Examin- 3 members. Unable to determine if there were restric- NA (7) Mayor Development Rent Equity Board no dwelling units; 1 landlord who owns at least 20 renters (6) tions on membership. Regulatory Mayor (12) al units; 1 who owns between 3 and 20 units; 1 member Fund for Parks Non-profit representing a broad and unbiased public interest. and Mayor 3 members. Currently all are city officials. board (8) Parks and Recreation, Inc Recreation Parks and Recre- 6 members. Unable to determine if there were restric- ation Regulatory Mayor tions on membership. Commission

66 67 Boston Housing Notes: 9 members. Unable to determine if there were restric- Authority Monitor- Managerial Mayor tions on membership. Departments shown in purple denote independent or quasi-independent agencies. ing Committee Boards and commissions in gray are not included in the analysis. Those in dark gray were excluded because the total membership Boston 30 members. 10 should be residents of elderly public was stipulated a priori to include only specific leaders and officials; those in a lighter shade of gray are inactive. Housing housing developments elected by their local tenant organizations; 10 should be residents of BHA fami- 1. http://zork.net/dsaklad/acts.html Authority Resident Advisory Elected by Advisory ly housing elected by their local tenant organization; Board their peers 2. https://www.cityofboston.gov/images_documents/Amend_BEC_tcm3-3202.pdf 10 should beparticipants in Section 8 voucher, homeownership, ormoderate rehabilitation program and be 3. http://www.guidestar.org/FinDocuments/2013/046/185/2013-046185609-09d188bf-9.pdf elected by BHA Section 8 participants. (13). 4. Terms of all members expired in 1/1/2013 Law 5. Term of last appointee expired in 2011 Boston Elections 4 members. Unable to determine if there were restric- 6. Term of last appointee expired in 2003. Elections Regulatory Mayor Commission tions on membership. 7. Not Available (NA) indicates that no information was found Operations and Administration 8. http://www.guidestar.org/FinDocuments/2012/042/784/2012-042784811-09727d86-9.pdf Boston 9. http://www.guidestar.org/FinDocuments/2012/042/682/2012-042682476-096e1e52-9.pdf Human 5 members, at least 2 should have experience in the Compensation Advisory Mayor Resources field of personnel management. 10. Inactive since 1994 per communication from J. Anzalota on 4/23/14 Advisory Board 11. Public Facilities moved to DND and this commission appears to be inactive at the new setting. 7 commissioners, 5 appointed by the Mayor. Of the 5, Property and Residency 1 is a city union representative and 2 are members of 12. This board’s mission to control rents in Boston is not implementable because rent control was overturned by voters (per commu- Construction Compliance Regulatory Mayor Save Our City; the city’s Affirmative Action Officer and nication with staff of the Rental Housing Center in DND on 4/1/14). Management Commission the President of the City Council serve ex officio. 13. http://www.bostonhousing.org/pdfs/PLN2003-03_RAB_Bylaws.pdf Public Safety 14. Inactive, per communication from staff of Fire Department on 4/24/14 Fire Depart- Arson Prevention Unable to determine membership or restrictions Advisory NA (7) 15. http://www.bostongroundwater.org/uploads/2/0/5/1/20517842/declaration_of_trust_with_revisions_as_amended_1-17-13.pdf ment Commission (14) on membership. Streets, Transportation and Sanitation Freedom Trail 5 members. Unable to determine if there were restric- NA (7) Mayor Commission tions on membership. Public Works Public Established by Improvement Regulatory 5 members, all city department heads. ordinance Commission Boston Water and Board of 3 members, residents of the city. At least 1 member Managerial Mayor Sewer Com- Commissioners with experience in accounting and finance. mission Other Agencies Boston 5 members; all must be residents of Boston for at least Finance Commissioners Managerial Governor 3 years. Commission 12 Trustees: 9 appointed by the Mayor from city residents or persons that maintain a business in the city upon recommendation of the President of the Greater Boston Real Estate Board, the President of the Fenway Community Development Corporation, the President of the Neighborhood Association of the Back Bay, Inc., Boston the President of the Boston Preservation Alliance, the Ground Wa- Trustees Advisory Mayor President of the Beacon Hill Civic Association, Inc., the ter Trust President of the Back Bay Association; the President of the Ellis Neighborhood Association; the Chinatown Neighborhood Council; the President of the North End Neighborhood Council. The Mayor also appoints 3 city officials from the executive branch of the city government, who serve ex officio. The final Trustee is the Pres- ident of the City Council. (15) Boston 3 members. Unable to determine if there were restric- Licensing Board Members Regulatory Governor tions on membership. Board

68 69 Appendix 4: Executive Positions. Appendix 5. Boards and Commissions, Type, Appointing City of Chelsea (as of March 1, 2014) Authority, and Requirements for Membership. City of Chelsea (as of March 1, 2014)

Agency / Department Occupant Latino Appointing City Manager Jay Ash - Agency / Department Board and Commissions Type (1) Requirements of Membership1 Authority1 City Manager Chelsea Housing Authority Albert Ewing - 7 trustees, including the city Chelsea Public Schools Sup. Mary Bourque - Trust manager; 4 are residents of the Affordable Housing City Manager City of Chelsea; 1 with experience Trust Fund. City Clerk / Parking Clerk Deborah Clayman - in financial/lending and 1 in Finance Department Ed Dunn - housing development. Assessor Steve Roche - 5 members, including the city man- Tree Board Advisory City Manager ager and 4 residents of the City of City Auditor Ed Dunn - Chelsea. Procurement Dylan Cook - 15 members ages 13 to 18, including the presidents of the freshman, Treasurer/Collector Robert Boulrice - sophomore, junior, and senior classes at Chelsea High School; two Department of Health and Human Services Luis Prado upper class students at Chelsea High School recommended Public Library Sarah Gray by the superintendent of schools. Health Department Luis Prado No more than eight members shall Youth Commission Advisory City Manager represent the recognized youth Elder Services Tracy Nowicki organizations within the city as Veterans Services Francisco Toro determined by the city manager, and at least one, shall be appointed Chelsea Community Schools Beatrice Cravatta - by the city manager after a Weed and Seed NA - solicitation of interest advertised by the city manager in a manner Refugee Services NA - the city manager shall see fit. Human Resources Robert Joy - Chelsea Housing Authority IT Services Department Ramon Garcia City Manager 5 members: 4 appointed by the City Board of Commissioners (2) Managerial Manager and 1 by the Governor Inspectional Services Department Joseph Cooney - Governor Law Department Cheryl Watson Fisher - City Clerk / Parking Clerk Licensing, Permitting and Consumer Affairs Deborah Clayman - 4 members: the City Clerk and 3 Managerial residents. Members represent Planning and Development Department John DePriest - Board of Registrar of Voters and City Manager the two leading political parties in Regulatory Public Safety equal number. Emergency Management, E-911 Alan Alpert - 5 members including the chiefs of Traffic and Parking Advisory / police and fire, the director of public Fire Robert Better - City Manager Commission Regulatory works, the director of planning and Police Brian Kyes - development, and 1 resident. Public Works Department Joe Foti - Finance Department Advisory / Retirement David Pickering - Assessor Board of Assessors City Manager 3 members Regulatory School Department Sup. Mary Bourque - Department of Health and Human Services 5 members with demonstrated Notes: Advisory / scholarship or creativity in, or Cultural Council City Manager Sections in purple denote independent or quasi-independent agencies. When a position is occupied by a Latino, the corresponding Managerial distinguished service to, the arts, humanities, or interpretive sciences. cell in the “Latino” column is highlighted in magenta. Advisory / Public Library Board of Trustees City Manager 7 members Managerial Advisory / Health Department Board of Health City Manager 5 members, 1 an MD Regulatory

70 71 17 members; at least 60 percent Elder Services Council of Elders Advisory City Manager over the age of 60. Appendix 6. Executive Positions. Community School Advisory Chelsea Community Schools Advisory City Manager 9 members Board City of Somerville (as of March 1, 2014) 7 members representative of classes protected under state and Agency / Department1 Occupant Latino federal law, including but not lim- Executive Office Joseph Curtatone, Mayor - Human Rights Commission Advisory City Manager ited to, race, color, religious creed, national origin, sex, age, disability, Chief of Staff Janice Delory - veteran status, ancestry, sexual ori- Aid to the Mayor Omar Boukili - entation, or public benefit status. Acccesibility Betsy Allan - Licensing, Permitting and Consumer Affairs Arts Council Gregory Jenkins - Cable Television Advisory Advisory City Manager 5 members Capital Projects Skip Bandini - Committee Constituent Services Steve Craig - 5 members including the director of the municipal inspections de- Council on Aging Cindy Hickey - Advisory / partment and 4 residents. Mem- SomerPromise Ann Doherty - Licensing Commission City Manager bers shall not be engaged, directly Regulatory SomerStat Daniel Hadley - or indirectly, in the manufacture or sale of alcoholic beverages. Sustainability and Environment David Lutes - Planning and Development Department Somerville Housing Authority Joseph R. Macaluso - School Department Sup. Tony Pierantozzi - Advisory / Conservation Commission City Manager 5 members Board of Health Paulette Renault Caragianes - Regulatory City Clerk John Long - City Manager Advisory / 5 members, 1 of whom shall be ap- Licensing Commission - Manageriall/ pointed by the secretary of the Ex- Economic Development Communication Denise Taylor - Regulatory ecutive Office of Communities and Board Elections Nicholas Salerno - Development (now Housing and Secretary of Economic Development). Finance Department Edward Bean - EOHED Board of Assessors Mark Levye - Advisory / Planning Board City Manager 9 members Regulatory Auditing Edward Bean - Purchasing Angela Allen - 3 members, including the execu- Treasurer Peter Forcellese - tive director of the Planning and Zoning Board of Appeals Regulatory City Manager Grants Manager Kate Ashton - Development Department and up to 2 associate members. Fire Kevin Kelleher - Information Technology Karthik Viswanathan - Law Frank X. Wright - Notes: Libraries Maria Carpenter - Departments marked in purple are independent agencies. Those marked in gray are inactive. Licensing Commission - In some cases, the charter described the board’s characteristics as being of more than one type. These are listed above. In those Office of Strategic Planning and Community Development (OSPCD) Michael Glavin - cases, we used in the analysis the type that allowed the most authority (for example, we selected regulatory when the types listed were advisory and regulatory) Economic Development Ed O’Donnell - Housing Dana LeWinter - 1 Information comes from original 1994 charter documents that appear in http://library.municode.com/index.aspx?clientId=14939 Inspectional Services Goran Smiljic - 2 Information on Chelsea Housing Authority Board of Commissioners comes from http://www.chelseaha.com/commissioners-and-meetings.html Planning & Zoning George Proakis - Transportation Hayes Morrison - Personnel William Roche - Police Charles Femino - Animal Control April Terrio - Public Works Stanley Coty - Traffic and Parking Suzanne Rinfret - Veteran’s Services Jay Weaver -

Notes: Sections in purple denote independent or quasi-independent agencies. When a position is occupied by a Latino, the corresponding cell in the “Latino” column is highlighted in magenta. 1 Structure largely taken from the organizational chart provided in the 2014 City of Somerville Municipal Budget; available at : http:// www.somervillema.gov/sites/default/files/FY14FINALBUDGETMASTERRECAP_0.pdf All sub-departments in Public Works were not provided; there were no Latinos listed in any position.

72 73 4 members, 2 of whom come from each of the Appendix 7. Boards and Commissions, Type, Election Commission Managerial Mayor leading political parties. Appointments are subject to approval by the Board of Aldermen. 5 members. From the ordinance: “Two members Appointing Authority, and Requirements for Membership. shall be appointed by the mayor and subject to approval of the board of aldermen, one member shall be appointed by the board of aldermen and subject City of Somerville (as of May 1, 2014) to approval of the mayor, one member shall be Mayor, appointed by the elected school committee members, Board of exclusive of the ex-officio members, and subject to Ethics Commission Regulatory Alderman, approval of the board of aldermen, and one member School Executive Office Board / (1) Appointing (1) shall be the election commissioner.” Members may Type (1) Requirements on Membership Committee / Department Commission Authority not be: a candidate for office or an elected official Executive Office in Somerville (at present or within the past year), a contributor to the campaign of a candidate for office 9 members: 1 member of the Planning Board, in Somerville, or an office-holder in any political party designated by it; 1 member of the Conservation or political campaign. Commission, designated by it; 1 member of the Community Mayor and Historical Commission, designated by it; 1 member of Health Department Preservation Advisory others the Somerville Housing Authority, designated by it; 1 Committee Board of Health Managerial Mayor 3 members. One seat must be filled by a physician. member of the Parks and Open Space Department, 17 members. The Mayor appoints 1 representative designated by the Mayor; 4 members of the general Mayor public. of the Mayor’s office and 14 persons broadly Multicultural Affairs representative of the social, economic and cultural Advisory President of Young Somerville Number is not determined. Members are 21 to 35 Commission interests of the community. The president of the Advisory NA Board of Advisory Group year old Somerville residents. Board of Aldermen appoints 2 members of the Alderman 8 members. Members live or work in Somerville and board of alderman. Arts Council Arts Council Board Advisory Mayor are active in the arts. 15 members. Membership is intended to “be Council on Aging Women’s representative of all socioeconomic and racial Council on Aging Advisory Mayor 11 members, 6 of whom shall be aging persons. Advisory Mayor Board Commission segments of the city as well as different neighborhoods” (Ord. No. 1988-3, § 4, 3-10-88) . 9 members. Five members must be persons with disabilities, although 1 of them may instead be 12 members. Members are residents who are Human Rights intended to “be representative of all socioeconomic Executive Office Commission for someone who has a person with a disability in their Regulatory Mayor on Disability Persons with Advisory Mayor immediate family. One member is a Somerville Commission and racial segments of the city as well as different and Compliance Disabilities employee, usually the Chief Engineer. The remaining Office of Somerville neighborhoods” (Ord. No. 1993-1, 1-28-93). 3 are community members who have an interest in Commissions 9–21 members (0 serving at present). advocating for persons with disabilities. 11 members. The Mayor made initial appointments; Members are drawn from local business, social subsequent appointments were by the other board service agencies, ethnic agencies, law enforcement Mayor, SomerPromise Advi- members. Members represent parents, the City, the agencies, clergy, labor, high school student SomerPromise Advisory SomerPromise sory Board Board of Aldermen, Somerville Public Schools, Somer- governments, and other organizations and groups Advisory Board. Human Rights which have an interest in human and civil rights. ville Housing Authority, Tufts University, low-income Human Rights Commission Advisory Some members are recommended by the Board residents, and nonprofit organizations. Commission Advisory Council of Aldermen, School Committee, Public Safety 7 members and 1 associate member. Membership is Commission, Fair Housing Commission, Disabilities intended to “be representative of all socioeconomic Commission, Women’s Commission, and Gay and Commission on Mayor, Sustainability and segments, religious creeds, national origins, sexes, Lesbian Liaison Advisory Group. Membership is Energy Use and Advisory Board of Environment sexual orientations and racial segments of the city as intended to “include persons from as many of the Climate Change Alderman well as different neighborhoods” (Ord. No. 2001-19, ethnic communities in the city as possible” (Ord. No. 11-20-2001) . 1993-1, 1-28-93). City Clerk Finance Department Licensing 3 members. Appointments are subject to approval Regulatory Mayor 3 members. Members must be Somerville residents. Commission by the Board of Aldermen. Board of Assessors Assessing Board of Assessors Regulatory Mayor members are staff; the chair is the head of the As- Election sessing Department. Libraries Library Board of 9 members. No restrictions on membership are Managerial Mayor Trustees named. Office of Strategic Planning and Community Development (OSPCD) Somerville Mayor 5 members: 4 members are appointed by the Mayor; Economic Redevelopment Regulatory 1 is appointed by the Governor. All members must be Development Authority Governor Somerville residents.

74 75 5–9 members (8 serving at present). Three members 13+ members (14 serving at present). Six seats are serve ex officio: the Mayor or designee, the president occupied by the Mayor, president of the Board of Affordable Housing Trustee Mayor of the Board of Aldermen, the Somerville Housing Aldermen, commissioner of public works, director Trust Fund Authority executive director or designee. The of traffic and parking, executive director of the remaining members are appointed by the Mayor. Bicycle Committee Advisory Mayor Office of Housing and Community Development, and chief of police, or their designees. For the remaining 5 members: 2 city homeowners, 2 city tenants, and Condominium 7 or more seats, membership is by application to the Regulatory Mayor 1 elderly, handicapped, or low- or moderate-income Review Board committee; current members select applicants for city resident. appointment at the Mayor’s discretion. Housing 5 members: 1 from the Office of Strategic Planning 7 members and 1 associate member. Members must and Community Development or the Somerville Transportation “have knowledge of and/or expertise in one or more Housing Authority; 1 tenant who is income-eligible of the following areas: energy management, energy for assisted housing in Somerville; 1 representative Fair Housing conservation, transportation, architecture and Regulatory Mayor from a local lending institution or local real estate Commission contracting, environmental education, and/or company; 1 from a community-based, non-profit Conservation Advisory Mayor urban planning” (Ord. No. 2001-19, 11-20-2001). social service agency concerned with housing-related Commission Membership is intended to “be representative issues in Somerville; 1 with substantial, of all socioeconomic segments, religious creeds, demonstrated experience in civil rights. national origins, sexes, sexual orientations and racial 7 members. All members must be Somerville segments of the city as well as different residents. “At least three of the members shall have neighborhoods” (Ord. No. 2001-19, 11-20-2001). professional degrees and experience in architecture, Personnel Design Review two members shall have professional degrees and Advisory Mayor Committee experience in architecture, landscape design, urban Municipal 5 members. Mayor appoints three members and Mayor / Board design, urban planning, or civil engineering, and two Compensation Advisory Board of Aldermen appoints 2 members. No of Alderman members could be of any profession” (Ord. No. 2009- Advisory Board restrictions on membership are named. 11, § 1, 6-11-2009). Recreation & Youth 7 members and 7 alternates: “one member, Recreation 10 members (8 serving at present). No restrictions on preferably a professional architectural historian, Managerial Mayor chosen from three nominees submitted by the Commission membership are named. Somerville Historical Society or the Society for Somerville Housing Authority the Preservation of New England Antiquities; one architect. . . chosen from three nominees submitted 5 members: the chair, vice chair, and treasurer by the local chapter of the American Institute of Mayor / are appointed by the Mayor; the vice treasurer is Somerville Housing Architects; a licensed real estate broker chosen Governor / appointed by the Governor; the member seat is Authority Board of Managerial from three nominees submitted by the regional Tenant for a resident who is nominated by other residents Commissioners Planning & Zoning chapter of the board of realtors; a city planner. Association (usually through public housing resident-led building . . ; a lawyer with knowledge of real estate and associations) and approved by the Mayor. Historic Preservation Regulatory Mayor historic preservation law; and two citizen members Commission who. . . have demonstrated a commitment to Somerville Retirement Board historic preservation. Two or more of the members Mayor 5 members: the City Auditor (ex-officio), 1 appointed so appointed shall be residents of a designated by the Mayor; 2 elected by members of the retirement Retirement Board (2) historic district. The alternate members shall Members of system; 1 chosen by the other 4 (who cannot be an Managerial include at least one resident of a designated historic Retirement employee, retiree or official of Somerville). No other district, one landscape architect, one licensed general System restrictions on membership are named. contractor or building tradesperson and four persons with a background in any of the other categories Traffic and Parking represented by the regular members of the 5 members. 4 members are: commissioner of public commission” (Code 1963, § 18-4; Ord. No. 1990-7, § Traffic works, chief of police or designee, chief engineer of the Regulatory Mayor 1, 5-10-90). Commission Fire Department or designee, and chair of the Board of 5 members and 1 alternate member. No restrictions Aldermen’s committee on traffic and parking. Planning Board Regulatory Mayor on membership are named. Veteran’s Services Zoning Board of 5 members and 2 associate members. No Veterans Commission Regulatory Mayor Mayor Appeals restrictions on membership are named. on Monuments, 6 members. Members are the Mayor, 3 veterans, Managerial Retirement Memorials and and 2 non-veterans. System Dedications

Notes: Purple sections denote quasi-independent entities; gray sections indicate boards and commissions which are no longer active. 1 The source of the information in these sections is the Somerville website, a phone call to the designated contact person of a board/commission or to staff person in the relevant agency, or the Somerville municipal code (accessed through https://library.municode.com). 2 Somerville’s Retirement Board administers retirement funds for Somerville employees under rules established by Chapter 32 of the Massachusetts General Laws and in cooperation with the state’s Public Employee Retirement Administration Commission. It is an independent entity, separate from city government.

76 77 About The Authors

Miren Uriarte is a sociologist and Professor of Human Services at the College of Public and Community Service and Senior Research Associate at the Mauricio Gastón Institute for Latino Community Development and Public Policy at UMass Boston.

James Jennings is Professor of Urban and Environmental Policy and Planning at Tufts University, where he teaches graduate courses on social policy and community development. He has lectured and published extensively on urban affairs.

Jen Douglas has worked for United for a Fair Economy, the National Consumer Law Center, and the Massachusetts Human Services Coalition. She recently completed a PhD in Public Policy at UMass Boston’s John W. McCormack Graduate School of Policy and Global Studies.